GOVERNMENT OF KERALA

KERALA DEVELOPMENT REPORT

INITIATIVES ACHIEVEMENTS CHALLENGES

KERALA STATE PLANNING BOARD

FEBRUARY 2021
KERALA DEVELOPMENT REPORT:
INITIATIVES, ACHIEVEMENTS,
AND CHALLENGES

KERALA STATE PLANNING BOARD

FEBRUARY 2021
 | iii

CONTENTS

List of Tables
List of Figures
List of Boxes
Foreword
1 Introduction and Macro Developments 1
2 Agriculture and Allied Activities 10
Agriculture in Kerala: An Assessment of Progress and a Road Map for the Future 10
Fisheries in Kerala: Prospects for Growth of Production and Income 32
Animal Resources in Kerala: An Assessment of Progress and a Road Map for the Future 37
Forest Governance: Initiatives and Priorities 52
3 Food Security and Public Distribution in Kerala 63
4 Water for Kerala's Development: Status, Challenges, and the Future 68
5 Industry: A New Way Forward 82
Structure and Growth of the Industrial Sector 82
Sources of Growth 87
Industrial Policy and Agencies for Transformation 96
Industrial Sector in Kerala: Major Achievements in the 13th Plan 99
6 Information Technology: The Highway to Growth 107
7 Leveraging Science and Technology for Development 121
8 Tourism in Kerala 131
9 Cooperatives in Kerala: The Movement, Positioning, and the Way Forward 142
10 Human Development 147
School Education Surges Ahead 147
Higher Education 151
Kerala's Health: Some Perspectives 155
11 Infrastructure 163
Bridging the Infrastructure Gap in Transport Sector 163
Sustainable Energy Infrastructure 168
12 Environment and Growth: Achieving the Balance 189
13 Local Governments 198
Decentralisation and Local Governments in Kerala 198
Urban Development Initiatives 208
14 Kerala Beyond its Borders 216
15 Learning from Disaster: The Kerala Experience 220
16 Kerala's Response to Covid-19 Pandemic: A Major Socio-Economic Challenge 227
17 Human Resources: Unleashing the Potential 242
iv |

Features of Kerala's Labour Force 242

Building a Skilled Labour Force 246
Protection of Labour Rights 248
Social Protection to Informal Sector Workers 250
Migrant Workers and Kerala economy 252
18 Scheduled Castes and Scheduled Tribes: Ensuring Inclusive Development 256
19 Some Social Initiatives for Inclusion 271
Empowering Persons with Disabilities 271
Empowering the Elderly 278
20 Gender and Development 286
Gender and Employment 286
Towards Gender Empowerment 293
21 Overcoming Fiscal Constraints to Growth 302
22 Some Major Integrated Programmes 315
The LIFE Mission 315
Subhiksha Keralam 315
A Special Package for Post-Flood Kuttanad 317
Kasaragod Development Package 318
Wayanad Package 318
Idukki Package 318
Acknowledgement 320
 |v

LIST OF TABLES

Sl. No. Item Page

Table 1.1 Plan outlay and expenditure, Kerala State, 2016-17 to 2019-20 2
Share of GSVA from each component within the total GSVA from agriculture, 13
Table 2.1
forestry and fishing, Kerala, 2011-12 to 2019-20
Allocation and expenditure under the plan schemes and through KIIFB in 14
Table 2.2
agriculture, nominal figures, Kerala
Expenditure in agriculture by local government institutions, Kerala, nominal figures, 18
Table 2.3
2012-13 to 2019-20
Table 2.4 Area and production of vegetables, Kerala, 2015-16 to 2018-19 18

Table 2.5 Average and potential yields of major crops, Kerala in mid-2010s 20
Average, potential and best yields of major crops, by selected agro-ecological zones, 21
Table 2.6
Kerala, mid-2010s
Expenditures for the four commodity boards under the Ministry of Commerce, 31
Table 2.7 India, revenue plus capital, deflated by GVSA deflator with base year 2011-12=100,
2011-12 to 2019-20
Table 2.8 Population of livestock and poultry in Kerala, 2007 to 2019 38
Number of cattle inducted as part of herd induction utilisation plan fund, Kerala, 38
Table 2.9
2006-07 to 2019-20
Table 2.10 Procurement milk through dairy cooperatives, Kerala, 2007-08 to 2019-20 43
Plan allocations and expenditures, Department of Animal Husbandry and Dairy, 45
Table 2.11
Kerala, 2011-12 to 2020-21
Expenditure in animal resources and dairy by local government institutions, Kerala, 45
Table 2.12
nominal figures, 2012-13 to 2019-20
Table 2.13 Classification of dairy farms by herd size, Kerala, 2019-20 46

Table 2.14 Area under fodder farms, Kerala, 2006-07 to 2018-19 46

Table 2.15 List of Protected Areas in Kerala 53

Table 2.16 List of territorial Forest Divisions in Kerala with extent 55

Table 3.1 Public Distribution System in Kerala at a glance 63

Details of electronic point of sale transactions and Aadhaar authentication, by 64
Table 3.2
month and year
Table 3.3 Advantages to stakeholders in the value chain 66

Table 4.1 Availability and demand of water in Kerala, 2001 72

Table 4.2 Annual yield of selected river basins in Kerala 72

Table 5.1 Key aspects of the factory sector, Kerala and India, 2017-18 83

Table 5.2 Key aspects of the factory sector, Kerala’s share in India, 2011-12 to 2017-18 83

Table 5.3 Key ratios related to the factory sector, Kerala and India, 2011-12 to 2017-18 83
Structure and relative size with respect to employment and value added, Shares of 84
Table 5.4 industries in total factory sector of Kerala and shares of Kerala’s industries in total by
the respective industries in India, 2016-17
vi |

Table 5.5 Employment in selected major industries, Kerala and India, 2016-17 86
Unincorporated non-agricultural enterprises (excluding construction) and workers, 87
Table 5.6
Kerala and India, 2015-16
Table 5.7 Year-wise details of new MSME units started in Kerala under each subsector 87
Subsector-wise details of new MSME units started in Kerala, from 2016-17 to 2020- 101
Table 5.8
21, up to January 2021
Assistance provided by KSIDC to enterprises, as share capital and loans, 2015-16 to 102
Table 5.9
2020-21
Table 5.10 Number of units operating in Industrial Growth Centres 103
Performance of State of PSUs under the Industries Department, Government of 104
Table 5.11
Kerala, Profit and Loss making Units, 2015-16 to 2020-21
Performance of State of PSUs under Industries Department, Government of Kerala, 104
Table 5.12
by Sectors, 2015-16 to 2020-21
Table 6.1 Plan outlay and expenditure 111

Table 6.2 Details of Akshaya centres in Kerala 113

Table 6.3 Physical achievements of Technopark, 2015-16 to 2019-20 114

Table 6.4 Multinational companies that engaged with Kerala 115

Table 6.5 Physical achievements of Infopark 116

Table 6.6 Major physical achievements of Cyberpark, 2015-16 to 2019-20 116

Table 6.7 Key projects of KSUM 118

Table 7.1 Outlay and expenditure of science and technology sector 124

Table 7.2 Overall performance of research and development centres 125

Table 7.3 Overall achievements of schemes and programmes 126

Table 7.4 Profile of RCC at a glance, 2016-17 to 2019-20 128

Table 7.5 Central and State Government schemes, 2016-17 to 2019-20 129

Table 8.1 Plan outlay and expenditure in tourism sector in Kerala, 2016-17 to 2019-2020 132

Table 9.1 Budgetary support for cooperatives in Kerala, 2012-13 to 2020-21 143
Year-wise distribution of non-functional cooperative societies in Kerala, from 144
Table 9.2
2013 to 2019
Table 9.3 Distribution of non-functional cooperative societies in Kerala, 2017 145
Estimated number of additional pupils enrolled, Standards I-X, Government and 148
Table 10.1
aided schools, Kerala, 2016-17 to 2020-21
Table 10.2 Public investment in school education, Kerala, 2016-17 to 2020-21 149

Table 10.3 Number of Persons who enrolled in Higher Secondary and 10th Equivalency Courses 150
Enrolment of students in Government and aided arts and science colleges in Kerala, 152
Table 10.4
2019-20
Proportion of students belonging to the Scheduled Castes and Scheduled Tribes in 152
Table 10.5
higher education, Kerala, 2019-20
Table 10.6 B.tech Result in engineering colleges, Kerala, 2020 153
 | vii

Table 10.7 Demographic and health profiles, Kerala and India 156

Table 10.8 Setting up of Cath Labs and Dialysis Units, through KIIFB 157

Table 10.9 Status of Infrastructural Development in Hospitals under Aardram Mission 158
Additional posts created in health services and under Aardram Mission, 2016 to 158
Table 10.10
January 15, 2021
Table 10.11 Investment in Health and Family Welfare, Kerala 159
Status of projects in health sector funded by Kerala Infrastructure Investment Fund 160
Table 10.12
Board
Table 10.13 Number of hospital beds, 2016 to 2020 161

Table 11.1 Kerala’s power scenario for 2019-20 171

Table 11.2 Status of Solar Projects in Kerala 172

Table 11.3 Progress of Transgrid 2.0 - Phase I and II in 2019-20 174

Table 11.4 KSEBL internal generation, 2019-20 174

Table 11.5 Ongoing Hydro Power Projects in the State 175

Table 11.6 Ongoing and pipeline renewable projects, Kerala State, 2020 176

Table 11.7 Progress of State Government funded projects, 2019-20 180

Table 11.8 Financial impact of Covid-19 on KSEB (as estimated on July 31, 2020) 182
196
Table 12.1 Physical achievements in sanitary waste management from 2017-18 to 2020-21

Table 12.2 Physical achievements with respect to water conservation 197

Share of productive sector expenditure in the total expenditure under normal share of 201
Table 13.1 
general sector funds of local governments from 2015-16 to 2019-20
Tender savings out of Plan and Maintenance Funds of various tiers of local 201
Table 13.2
governments from 2017-18 to 2019-20
Table 13.3 Plan Outlay (Development Fund) to local governments 202

Table 13.4 Devolution of Maintenance Fund and General Purpose Fund to local governments 202

Table 13.5 Allocation to Million-Plus Urban Agglomerations in Kerala 207

Physical achievements of Pradhan Mantri Awaas Yojana-Urban housing scheme, 209
Table 13.6
Kerala, 2016-17 to 2020-21
Table 13.7 Progress of AMRUT project in Kerala 210

Table 13.8 District-wise details of Open Defecation Free (ODF) in urban area, Kerala 211

Table 13.9 Details of Haritha Karma Sena (HKS) in districts, Kerala 212
Details of material collection facility centres and resource recovery facility centres in 213
Table 13.10
districts
Number of households provided employment under Ayyankali Urban Employment 214
Table 13.11
Guarantee Scheme from 2016-17 to 2019-20, Kerala
Table 14.1 Country of residence of emigrants from Kerala 216

Table 15.1 Estimation of damages in Kerala consequent to floods in 2018 224

Table 16.1 Details of items in Athijeevana Kit 237

viii |

Table 16.2 Scheme-wise distribution of Athijeevana kit 237

Table 16.3 Monthly rations distributed from April to September 2020 238

Table 16.4 Food kits to students 238

Table 17.1 Proportion of population in different age groups, Kerala and India, 1981 to 2011 243
Labour force participation rates (UPSS) for persons aged 15 and above in Kerala, 244
Table 17.2
2011-12 and 2017-18
Usual Principal Status (UPS) workers by type of work (15 and above) in Kerala, 2011- 244
Table 17.3
12 and 2017-18
Table 17.4 Sectoral shares in employment and output 245

Table 17.5 Average daily wages and earnings of workers in Kerala and India, 2018-19 246

Table 17.6 Physical achievements of DDU-GKY, 2019-20 and 2020-21 247

Skill trainings for persons belonging to Scheduled Castes and Scheduled Tribes, 247
Table 17.7
2016-17 to 2020-21
Table 17.8 Social Security Schemes for informal sector workers under Labour Department 252
Allocation of Scheduled Caste Sub-Plan funds to Scheduled Caste Development 256
Table 18.1
Department and local governments, Kerala, 2016-17 to 2020-21
Outlay and Expenditure of Scheduled Caste Sub-Plan funds, Kerala, 2016-17 to 256
Table 18. 2
2020-21
Outlay and expenditure for land and housing by Scheduled Caste Development 258
Table 18.3
Department, Kerala, 2016-17 to 2020-21
Table 18.4 Houses sanctioned and completed for Scheduled Castes, Kerala, 2016-17 to 2019-20 258
Outlay and expenditure for education by Scheduled Caste Development 259
Table 18.5
Department, Kerala, 2016-17 to 2020-21
Outlay and expenditure for the training, employment, and human resource 259
Table 18.6 development scheme of Scheduled Caste Development Department, Kerala, 2016-17
to 2020-21
Number of persons availed who self- employment subsidy and assistance for seeking 260
Table 18.7 job abroad provided by Scheduled Caste Development Department, Kerala, 2016-17
to 2019-20
Number of persons benefited under healthcare scheme of Scheduled Caste 260
Table 18.8
Development Department, Kerala, 2016-17 to 2019-20
Outlay and expenditure for marriage assistance and number of families benefited 261
Table 18.9 from the assistance by Scheduled Caste Development Department, Kerala, 2016-17
to 2019-20
Table 18.10 Allocation to Tribal Sub-Plan, Kerala, 2016-17 to 2020-21 262
Tribal Sub-Plan funds to Scheduled Tribe Development Department and local 263
Table 18.11
governments, Kerala, 2016-17 to 2020-21
Table 18.12 Outlay and Expenditure of Tribal Sub-Plan funds, Kerala, 2016-17 to 2020-21 263
Outlay and expenditure of Scheduled Tribe Development Department, 2016-17 to 264
Table 18.13
2020-21
Details of land distributed to people of the Scheduled Tribes in Kerala under various 264
Table 18.14
schemes, 2016-17 to 2020-21
Outlay and expenditure for housing for families belonging to the people of the 265
Table 18.15
Scheduled Tribes, Kerala, 2016-17 to 2020-21
 | ix

Outlay and expenditure (Plan and non-Plan) for education by Scheduled Tribes 265
Table 18.16
Development Department, Kerala, 2016-17 to 2020-21
Number of students and expenditure under pre-matric and post-matric scholarships 266
Table 18.17 (Plan and non-Plan) for students belonging to the Scheduled Tribes, Kerala, 2016-17
to 2019-20
Number of tribal families who completed 100 days job under Mahatma Gandhi 267
Table 18.18
National Rural Employment Guarantee Scheme, Kerala. 2018-19 to 2020-21
Outlay and expenditure under health programmes of Scheduled Tribes Development 268
Table 18.19
Department, Kerala, 2016-20
Patients who availed treatment under mobile medical clinics of Scheduled Tribes 268
Table 18.20
Development Department, Kerala, 2017-18 to 2020-21
Outlay and Expenditure under Corpus Fund of Scheduled Tribes Development 269
Table 18.21
Department, Kerala, 2016-17 to 2020-21
Table 18.22 Attappady Farming Society, descriptive features of farm 270
Beneficiaries of major institutes related to disabilities under the Social Justice 274
Table 19.1
Department, Government of Kerala
Table 19.2 Age-wise elderly participation in various activities, Kerala 280

Table 19.3 Percentage distribution of elderly by annual personal income by sex, Kerala, 2011 280

Table 19.4 Details of Karunya Arogya Suraksha Padhathi beneficiaries, Kerala 282

Table 19.5 District-wise details of palliative care units in Kerala 283

Worker Population Ratio according to usual status (usual principal status plus 286
Table 20.1
subsidiary status) for persons aged 15 and above 2018-19, Kerala and all India
Worker Population Ratio according to usual status (usual principal status plus 287
Table 20.2 subsidiary status) in 2018-19 for 15 years and above of different general education-
level for Kerala and all India
Percentage distribution of female workers in usual status (usual principal status plus 287
Table 20.3
subsidiary status) by broad status in employment in 2017-18 and 2018-19
Table 20.4 Status of MGNREGS employment provided in Kerala from 2016-17 to 2020-21 288
Employment generation Information Technology (IT) sector and Public Sector 292
Table 20.5
Undertakings (PSUs) in Kerala
Average daily wage for those aged 15 and above in employment by sector and sex, 292
Table 20.6
2017-18
Table 20.7 Women elected representatives in local governments, Kerala, 2020 294

Table 21.1 Trend in total receipts, Kerala, 2010-11 to 2020-21 302

Table 21.2 303
Trend in revenue receipts, Kerala, 2010-11 to 2020-21
Table 21.3 304
Trends in non-tax revenue, Kerala, 2010-11 to 2020-21

Table 21.4 Resource transfers from Centre to Kerala, 2010-11 to 2020-21 305

Table 21.5 Trend in resource transfers from Centre to Kerala, 2010-11 to 2020-21 305
Share of Finance Commission transfers in total Central transfers to States, 306
Table 21.6
2015-16 to 2020-21
Cess and Surcharges as percentage of Gross Tax Revenue of Union Government, 306
Table 21.7
2011-12 to 2020-21
Table 21.8 Total outstanding debt in Kerala, 2010-11 to 2020-21 307
x|

Table 21.9 Trend in revenue expenditure, Kerala, 2010-11 to 2020-21 307

Table 21.10 Trend in capital expenditure, Kerala, 2010-11 to 2020-21 308

Table 21.11 Trends in the capital outlay, Kerala, 2010-11 to 2020-21 309

Table 21.12 Trends in major deficit indicators, Kerala, 2010-11 to 2020-21 309

Table 21.13 Trends in Plan outlay and expenditure, Kerala, 2010-11 to 2020-21 310

Table 21.14 Estimated GST compensation to Kerala, 2021-26 311

Criteria for horizontal devolution of tax resources by Centre to States in the 13th, 312
Table 21.15
14th, and 15th Finance Commission Reports
Table 22.1 Houses completed under LIFE Mission, 2016-17 to 2020-2021 316

Table 22.2 Expenditure under LIFE Mission, 2016 to 2020-21 316

Table 22.3 Financial progress of Kasaragod Development Package as on September 30, 2020 319

Table 22.4 Physical progress of Kasaragod Development Package as on September 30, 2020 319
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LIST OF FIGURES

Sl. No. Item Page

Trends in GDP and GSVA from agriculture, Kerala, 1980-81 to 2019-20, at
Figure 2.1 12
constant prices
Figure 2.2 Value of output from all crops, Kerala, in 2011-12 prices, 2011-12 to 2017-18 13
Trends in the value of output (VOO) in selected crops, Kerala, in 2011-12
Figure 2.3 15
prices, 2011-12 to 2017-18
Figure 2.4 Trends in the production of selected crops, Kerala, 2011-12 to 2018-19 16

Figure 2.5 Trends in the productivity of selected crops, Kerala, 2011-12 to 2019-20 22
Deflated value of output (VOO) from fisheries and aquaculture in Kerala from
Figure 2.6 34
2011-12 to 2017-18
Gross State Value Added (GSVA) at constant basic prices, livestock sector,
Figure 2.7 39
Kerala, 2011-12 to 2019-20 base year 2011-12
Value of output (VOO) from livestock and selected sub-sectors, Kerala, in
Figure 2.8 41
2011-12 prices, 2011-12 to 2017-18
Figure 2.9 Milk production and per capita availability, Kerala, 1992-93 to 2019-20 42

Figure 2.10 Production of egg and meat, Kerala, 1992-93 to 2019-20 43

Figure 2.11 Import of animals into Kerala, by type, 2012-13 to 2019-20 44

Implementation of national portability transactions in Kerala, January to
Figure 3.1 65
December 2019
Figure 4.1 Monthly distribution of rainfall in Kerala, April 2018 to March 2019 71
Manufacturing’s Share in Kerala’s GSVA and Kerala’s Share in GVA by India’s
Figure 5.1 82
factory sector
Chemicals and Pharmaceutical industries in Kerala, Index of Production (Gross
Figure 5.2 Value Added) (with index for 2011-12 = 100) and share of Kerala in value 85
added by these industries in India
Annual growth rates in foreign tourist arrivals (FTAs) in India and Kerala from
Figure 8.1 134
2010 to 2019
Figure 8.2 Month-wise comparison of foreign tourist arrivals in Kerala from 2009 to 2019 135
Share of foreign tourist arrival from top ten countries of the world to Kerala in
Figure 8.3 135
2018 and 2019
Figure 8.4 Region-wise foreign tourist visits in Kerala in 2019 136
Annual growth rates in the arrival of domestic tourists in Kerala from 2010 to
Figure 8.5 136
2019
Figure 8.6 Month-wise arrival of domestic tourists in Kerala from 2010 to 2019 137
Share of domestic tourist arrivals from top ten States to Kerala in 2018 and
Figure 8.7 137
2019
Figure 8.8 Region-wise domestic tourist visits in Kerala in 2019 137
xii |

Figure 8.9 Total earnings from tourism in Kerala, from 2010 to 2019 138

Figure 10.1 Budgetary Investment in Health in 13th Five-Year Plan 160

Figure 10.2 Inpatients and Outpatients, Kerala, 2016-2020 162

Figure 11.1 Electrical energy consumption in Kerala 171

Aggregate technical and commercial (AT&C) losses, and transmission and
Figure 11.2 172
distribution losses (T&D)
Figure 11.3 Installed capacity of power, Kerala State, 2019-20 175
Annual average values of air pollutants at 10 monitoring stations in residential
Figure 12.1 192
areas of Kerala 2019
Annual average values of air pollutants at three monitoring stations in sensitive
Figure 12.2 193
areas of Kerala 2019
Annual average values of air pollutants at 11 monitoring stations in industrial
Figure 12.3 193
areas of Kerala 2019
Figure 12.4 Biochemical Oxygen Demand-levels at selected river stations for 2013 and 2019 194
Quarterly plan expenditure figures of local governments from 2014-15 to
Figure 13.1 199
2019-20
Distribution of registered migrant workers from other States/Union Territories
Figure 17.1 253
in the districts of Kerala (as on August 31, 2020) as per Aawaz registration
Number of elderly in a district and percentage of elderly to the total district
Figure 19.1 278
population, Kerala
Figure 19.2 Residents in old age homes in Kerala, 2015-16 to 2018-19 281
Number of families completed 100 days of employment under MGNREGS as
Figure 20.1 286
on March 31, 2020
Figure 20.2  Total crimes against women in Kerala 298
Proportion of components of revenue receipts to total receipts, Kerala, 2010-11
Figure 21.1 304
to 2020-21
Share of developmental and non-developmental expenditure in total
Figure 21.2 308
expenditure, Kerala, 2010-11 to 2020-21
Figure 21.3 Trends in major deficit indicators, Kerala, 2010-11 to 2020-21 310
 | xiii

LIST OF BOXES
Sl. No. Item Page
Box 7.1 Institute of Advanced Virology 127
Box 9.1 Kerala Bank 144
Box 12.1 Ban on Single Use Plastic 192
Box 12.2 Surveillance of Sabarimala during Pilgrimage Season 194
Box 13.1 Local Governments and the Covid-19 Pandemic 206
Box 13.2 Green Protocol 212
Box 13.3 Declaration of Suchitwa Padavi 212
Box 16.1 A New Model of Accountability 228
Box 16.2 Role of Kudumbashree during Covid-19 239
Box 16.3 Youth and Covid-19 240
Box 17.1 Welfare Fund Boards under Labour Department of Kerala 251
Box 18.1 Attappady Alternative 269
 Foreword

The “Kerala Development Report: Initiatives, Achievements, and Challenges” deals with the initiatives and
achievements of the Government and people of Kerala, and with the challenges they face. It is a description and
analysis of the major features of economic policy and development in Kerala, with an emphasis on the years from
2016 to 2020.
Kerala’s accomplishment shows that the well-being of the people can be improved, and social, political, and
cultural conditions transformed, when there is appropriate public action. In Kerala, the action of mass organisations
and mass movements against social, political, and economic oppression and the policy actions of governments have
been the most important constituents of public action. Kerala is unique in the extent of people’s participation in
government, particularly at local levels, and in varied forms of civic cooperation in public action.
When the present Government of Kerala came to office in 2016, it decided, against the trend at the centre
and in other States, to continue the process of economic planning. The Government decided that while deepening
and extending its achievements in human development, it would use these achievements as a foundation on which
to create new employment opportunities for the people, particularly youth, to enhance the productive forces and
increase incomes from production in agriculture, industry, and income-bearing services, and to build infrastructure.
The goal of the Thirteenth Five-Year Plan is a modern, developed Kerala, one that is marked by scientific
and technological progress, by the progress of the scientific temper, and by new levels of production and decent
employment, particularly for the young women and men who are entering our labour force.
The last four years and a half have been turbulent. There were extreme weather events: cyclone Ockhi in
2017, and extreme rainfall events followed by floods and mudslides in 2018 and 2019. There was an outbreak of
Nipah virus disease in two districts of the State in 2018. There were new stresses on the State economy caused by
demonetisation in 2016 and the introduction of GST in 2017. And in Kerala as elsewhere, the crisis associated with
the Covid-19 pandemic has unsettled the economy as never before.
Nevertheless, these have been years of achievement as well.
The Economic Review 2020 shows that, despite all the setbacks, the average rate of growth from 2016-17 to
2019-20 (5.4 per cent) was higher than the average rate of growth for the previous four years, 2012-13 to 2015-16
(4.8 per cent). This rate of growth was achieved in the backdrop of a subdued international and national growth
environment.
There have been the most sweeping changes in decades in public schooling, great changes in health facilities
with regard to public access and quality, a transformation in major physical infrastructure, a new policy direction in
industry and information technology, a deepening of participatory local government, renewed thrust to livelihoods
and job creation, and an enhancement of social protection, and gender empowerment measures.
Kerala has shown resilience in the midst of all crises and always kept people at the centre of its policy decisions.
The leadership of Chief Minister Pinarayi Vijayan played a crucial role in Kerala’s approach to development and
response to crisis.
In this Report, we present some of the policy initiatives, programmes, and schemes introduced by the
Government as envisaged in the 13th Plan and the salient achievements in some sectors of the economy. The
Report also describes the challenges that we face and the way ahead. The introductory chapter provides the macro
achievements of the Government in brief. The detailed version is documented in relevant sections of the Report.
A more comprehensive account of this government’s visions, plans, schemes and programmes, and performance
are available in the Approach Paper to the Thirteenth Five-Year Plan, Annual Plans from 2016-17 to 2020-21, and
the Economic Review from 2017 to 2020 and other documents of the State Planning Board. These are available at
https://spb.kerala.gov.in.
The Report is the outcome of the efforts of many people.
The Members of the State Planning Board (in alphabetic order: Mridul Eapen, B Ekbal, K N Harilal, T
Jayaraman, R Ramakumar, K Ravi Raman, and Jayan Jose Thomas) and Chiefs of Divisions (in alphabetic order:
Josephine J, N R Joy, S S Nagesh, P Shaji, Bindu P Verghese, and Santhosh Vidyadharan) are the main authors of
the Report. The Members, Chiefs of Divisions, and the Economic Advisor to the Vice Chairperson drafted different
sections of the Report. The Chief, Plan Coordination Division, was also involved in the initial co-ordination of
the Report. The technical officers of the State Planning Board also contributed to writing different sections of the
Report. Members commissioned background papers for this Report, and the authors of the background papers
xvi |

have been listed elsewhere in this report. Departments and other agencies of Government sent content for the
Report when requested by the Planning Board. The Senior Administrative Officer and the Plan Publicity Division
helped in the selection of the printer of this Report.
V. Venu IAS, Member Secretary, Kerala State Planning Board, led the planning of the Report, reviewed
chapters, participated in the editing process, and guided and coordinated its production.
Members of the editorial team in the Vice Chairperson’s office included (in alphabetic order) Akhil Bharathan,
Bipin Chandran, Riya Anie Cherian, T P Harshan, V Pradeep Kumar, M Reghunathan, Susmita Vinod, and C K
Vijayasuryan. T P Harshan played an important role in planning and organising the Report.
Gayatri Nair IES, Economic Advisor in the office of the Vice Chairperson, led every stage in the progress
of the Report: planning, receiving texts, writing and reviewing content, editing, laying out the final version, and
printing. The Report would not have been possible without her efforts and her leadership of the editorial team.
I am grateful to all of them.
My colleagues in the Kerala State Planning Board and I hope that this Report serves as a document of reference
with respect to the initiatives and achievements of the Government of Kerala, and as a guide when charting the
future development of the State.

V K Ramachandran
Vice Chairperson
February 25, 2021
 INTRODUCTION | 1

Chapter 1
Introduction and Macro Developments
Kerala has been, and remains, the most important known nationally and internationally, the leadership
example in independent India of the power of public of Chief Minister Pinarayi Vijayan played a
action to improve the well-being of the people and to crucial role in the formulation of the vision for
transform social, political, and cultural conditions in a a New Kerala (Nava Keralam). In its first year in
State. In Kerala, the actions of mass organisations and office, the Government of Kerala established four
mass movements against social, political, and economic important missions, each of which addressed an
oppression, and the policy actions of Governments important area of development. The missions were
have been the most important constituents of such (i) The LIFE (Livelihood, Inclusion, and Financial
public action. Empowerment) Mission, (ii) the General Education
The progress made by the State in the last five years on Protection Mission, (iii) the Aardram Mission, and
numerous fronts is based on the strong foundations of (iv) the Green Kerala (Haritha Keralam) Mission,
earlier achievements in respect of land reforms, health, which focuses on environmental issues.
school education, social justice, gender inclusiveness, The missions emphasise sustainable development
and social protection. and people’s participation in the following fields:
When the present Government assumed office in i) high-quality school education;
2016, it inherited an economy that was stagnant in ii) people-friendly health facilities;
terms of growth and one that had seen little progress iii) nature-friendly (including organic) agriculture;
in core areas in the preceding five years. The State faced iv) waste management, a clean environment, and a
serious resource constraints, mainly as a consequence litter-free Kerala;
of the asymmetry in India’s federal system. That the v) clean water bodies and enhanced water resources;
structure of fiscal federalism in India is greatly biased in and
favour of the Centre is well known. The liberalisation vi) secure housing and livelihoods.
regime has exacerbated the imbalance in the Indian 2) Increasing material production in agriculture and
fiscal system. This imbalance is manifested in the industry.
mechanism by which resources are shared between the 3) Generating employment, skill development,
Centre and the States as well as in the decreasing space livelihood security, and entrepreneurship.
for borrowing allowed to the State Governments. 4) Strengthening Kerala’s physical and social
Even as the Government of India abandoned Five- infrastructure.
Year Plans and disbanded the Planning Commission, 5) Strengthening the financial infrastructure.
the Government of Kerala under the leadership of Chief 6) Expanding the role of modern science and technology
Minister Pinarayi Vijayan reiterated its commitment in society and production, promoting sustainable
to the planning process. Despite the specific form of development, and modernising governance and
capitalist development that now prevails, and despite administration.
the constraints that State governments must face, the 7) Deepening people’s planning by local governments.
Government believed that it had to present an alternative 8) Extending social protection and the struggle against
to the people. The State Government, committed to social exclusion.
people’s welfare, would address their most important 9) Promoting activities centred on heritage, culture,
economic, social, and political concerns. promoting tourism, particularly responsible tourism,
The goal of the Thirteenth Five-Year Plan is a and building cultural and economic ties with non-
modern, developed Kerala, one that is marked by resident Malayalis.
scientific and technological progress, by the progress of Thus, the policy of the present Government is to
the scientific temper, and by new levels of production build on the legacy of the State, to defend the historical
and decent employment, particularly for the young gains of the people, and to build a secular, democratic,
women and men who are entering our labour force. inclusive alternative for social and economic
The strategy for the 13th Plan as a whole includes development.
the following: The 13th Five-Year Plan period has been
1) Building a new Kerala through the four missions unprecedented. There were extreme weather events:
announced by the Government. As is now well cyclone Ockhi in 2017, and extreme rainfall events
2 | KERALA DEVELOPMENT REPORT 2021

followed by floods and mudslides in 2018 and 2019. Table 1.1 Plan outlay and expenditure, Kerala State,
There was an outbreak of Nipah virus disease in two 2016-17 to 2019-20 in Rs crore
districts of the State in 2018. There were new stresses on
Year Plan Plan Plan
the State economy caused by demonetisation in 2016
outlay expenditure expenditure as
and the introduction of GST in 2017. And in Kerala
per cent
as elsewhere, the crisis associated with the Covid-19
of plan outlay
pandemic unsettled the economy as never before. The
production of goods and services during the early phase 2016-17 24000 24470.73 101.96
of the Covid-19 pandemic came to an abrupt and
2017-18 26500 29896.78 112.82
almost total halt. Further, the halt to production during
the Covid-19 pandemic was not locality-specific or 2018-19 29150 26047.32 89.36
scale-specific. Its effects were from top to bottom and
2019-20 30610 22825.29 74.57
across all locations. There was uncertainty about the
period that it would take to resume production after Source: Annual Plans.
the worst of the crisis was over. There is still uncertainty Sustainable Development Goals
about how long it will take to achieve previous levels In 2018 and 2019, Kerala topped Indian States in
of production of goods and services, since their progress in achieving UN Sustainable Development
resumption involves national and international supply Goals in NITI Aayog’s SDG India Index. The
and distribution chains. Sustainable Development Goals (SDG) India Index
Despite the multiple challenges that the State of measures the progress made by Indian States and
Kerala has had to confront – with respect to natural Union Territories towards implementing the 2030
disaster, the pandemic, and limited financial resources SDG targets. Kerala ranked first in SDGs relating to
and other setbacks caused by adverse Central policy health, education, and gender equality in 2018. In
– there have been short-term, medium-term, and 2019, Kerala ranked first in SDGs relating to health,
long-term structural gains in different spheres of the industry, innovation, and infrastructure, and second in
economy. This chapter gives an overall introduction to education and gender equality.
these achievements; a more detailed account is in the Growth of the Productive Forces
chapters that follow. Agriculture and allied sectors
Economic Growth When this government assumed office, the year-on-
The Economic Review 2020 shows that, despite all the year rate of change in the agriculture sector was -5.1 per
setbacks, the average rate of growth from 2016-17 to cent. The growth in crop production was even lower
2019-20 (5.4 per cent) was higher than the average rate at - 7.91 per cent.
of growth for the previous four years, 2012-13 to 2015- Agriculture and agricultural modernisation are key
16 (4.8 per cent). This rate of growth was achieved in components of the 13th Plan. The main objectives
the backdrop of a subdued international and national set for the agricultural sector in the 13th Five-Year
growth environment. Plan are to enhance productivity, profitability, and
Economic Planning sustainability in production. To enhance productivity,
Kerala remains the only State to have made a public agriculture has to be modernised through science-based
commitment to continue the planning process. Plans inputs and farming practices. High profitability means
have served as instruments to structure the aspirations higher farm business incomes, and better sustainability
of the people into schemes and programmes, and divert emphasises farming practices that keep the health of the
the scarce resources of the economy to productive and environment in focus.
socially impactful projects. The Government of Kerala The agricultural policy of the Government of Kerala
formulated the 13th Five-Year Plan (2017–22), with has shown results. After consecutive years of decline,
Annual Plans to guide the development process in the annual growth in the agriculture sector increased to
State. In fact, timely interventions by the Government 2.11 per cent in 2017-18, with a 1.52 per cent growth
at times of crises were made possible by reorienting in crop production. The production of paddy increased
the focus of Plans to address the critical needs of the from 5.49 lakh metric tonnes (MT) in 2015-16 to
economy after the floods and landslides, and after the 5.87 lakh MT in 2019-20. The productivity of paddy
onset of the pandemic. increased from 2790 kg per hectare (ha) in 2015-16
 INTRODUCTION | 3

to 3073 kg per ha in 2019-20. The production and between 2014-15 and 2018-19. Fish seed production
productivity levels of paddy in 2019-20 were the increased from 218 lakh fingerlings in 2016-17 to 374
highest recorded in the last ten years. lakh fingerlings in 2018-19, thus providing a major
This period also saw a leap in vegetable cultivation impetus for aquaculture.
and production. Production increased from 7.25 lakh Commissioning the Muvattupuzha Valley Irrigation
metric tonnes from an area of 52,830 ha in 2016-17 to Project is a major achievement of the 13th Plan. This
14.9 lakh tonnes from an area of 96,313 ha in 2019-20. was part of the efforts of the Government to complete
A farmer-friendly focus has been central to the ongoing major and medium irrigation projects in
agricultural policy in Kerala over the past five years. The the State, mainly the four projects at Muvattupuzha,
Government of Kerala provides direct cash assistance to Idamalayar, Karapuzha, and Banasurasagar. Increased
every rice farmer. In addition, assistance is provided by focus on minor irrigation resulted in the expansion of
local governments to farmers. In 2020, the Government net irrigated area over the period from 3.92 lakh ha in
introduced royalty payments to rice farmers. Thus, 2017-18 to 4.09 lakh ha in 2019-20.
close to Rs 25,000 per ha per annum is received by a Industry
rice farmer in Kerala. A turnaround in the performance of the manufacturing
Procurement of paddy increased from 5.61 lakh sector has been central to the revival of Kerala’s economy
metric tonnes at Rs 21.5 per kg in 2015-16 to 7.01 from 2016 onwards. There has been a steady increase
lakh metric tonnes at Rs 26.95 per kg in 2019-20. In in the size of Kerala’s manufacturing sector, in value
2020-21, the procurement rate was further enhanced terms, especially so over the last four years. The share of
to Rs 27.48 per kg. manufacturing in Kerala’s GSVA increased from 9.8 per
The State Government has positioned agriculture cent in 2014-15 to 12.5 per cent in 2019-20. According
to be an important staging ground for recovery in to data from the Annual Survey of Industries, Kerala’s
the post-Covid economy. It introduced a large-scale share in gross value added by India’s factory sector
agricultural programme called “Subhiksha Keralam” increased from 1.2 per cent in 2014-15 to 1.6 per
in 2020; the programme emphasises production, value cent in 2016-17. Despite the economic recession, the
addition, and marketing. manufacturing sector of Kerala grew at 1.5 per cent at
In the 13th Plan period, there was a moderate revival constant prices (2011-12) in 2019-20.
in milk production as a result of improved levels of Major highlights of the improved performance of
intervention by the Government in milk procurement. Kerala’s manufacturing sector from 2016-17 onwards
More importantly Kerala was able to reduce its milk include a revival in the performance of State PSUs
imports from 9 lakh litres of milk in 2016-17 to about (mainly in the chemicals and electrical machinery
3.2 lakh litres per day in 2019-20. The opening of sectors) and a continuing vigour in the growth of
round-the-clock veterinary hospitals was an important micro, small, and medium enterprises (MSMEs).
initiative during the 13th Plan period. Currently, there One of the notable achievements for Kerala in the
are 31 such hospitals in 45 blocks across the State. In sphere of industry has been a favourable change in
2020-21, the coverage of such hospitals is planned to perception among potential entrepreneurs over the last
be extended to all 152 blocks in the State. An insurance few years. Important events such as Ascend in 2019
scheme for cattle has been introduced by the Animal and 2020 were held to attract industrial investments
Husbandry and Dairy Departments. to the State. Kerala also implemented policy measures
Kerala’s coastline is 590 km long, and the estimated to improve the ease of doing business in the State. The
number of fish workers is 10,44,000. Fisheries have Kerala Micro Small Medium Enterprises Facilitation
been an important area of planned growth in the past Act 2019 is one of the key initiatives under the Ease of
four years. Fish production, which declined from 7.27 Doing Business Reforms of the Industries Department.
lakh metric tonnes (MT) in 2015-16 to 6.73 lakh MT Kerala has taken steps to implement the high-
in 2017-18, turned around in 2018-19, with total fish tech industrial corridor project connecting Kochi
production increasing to 8.02 lakh MT. Despite the and Palakkad. The corridor is expected to stimulate
major setback caused by the floods of 2018-19, State- large investments in the areas of high technology
led efforts towards the revitalisation of waterbodies and manufacturing, agro-processing, information technology,
good fisheries management have also resulted in an biotechnology, and life sciences and will be one of the
increase of about 15 per cent in inland fish production key centres for Kerala’s industrial growth.
4 | KERALA DEVELOPMENT REPORT 2021

Service Sectors Tourism

Information technology In 2017, the Government of Kerala announced a
The Government of Kerala has taken major strides new tourism policy, outlining a new framework and
ahead in the Information Technology (IT) sector in significant new areas of attention in tourism. In the
the last four years. The sector saw the entry of world- last four years, while the Government continues to pay
renowned companies into the State. attention to destination development, new emphasis
The Kerala Fibre Optic Network (KFON) and and an increased share of investment has gone to
Skill Delivery Platform Kerala are major initiatives in promotion and marketing in the tourism sector.
the 13th Plan. KFON, which is a project initiated by After the floods of 2018 and 2019, the Government
the Government of Kerala to provide seamless internet and tourism industry worked together to rebrand the
connectivity to Government offices and free internet State’s tourism sector. The tourism sector rebounded
connectivity to 20 lakh economically backward strongly in 2019. There was a 17.2 per cent year-on-
households, is nearing completion. year increase in total tourist arrivals in 2019. This
The State Government’s 2017 IT policy aimed to growth in tourist arrivals was the highest after 1995.
transform Kerala into a knowledge-based society and The percentage growth in the inflow of foreign and
domestic tourist arrivals in 2019 over 2018 was 8.5
leading IT destination. It also sought to build the
per cent (foreign tourist arrivals) and 17.8 per cent
necessary technological infrastructure for the creation
(domestic tourist arrivals). Total foreign exchange
of an environment favourable to ICT development,
earnings from tourism crossed Rs 10,000 crores for the
and to enhance the necessary human capital required to
first time in 2019, reaching Rs 10,271 crore. The total
both produce and use innovative technologies through
revenue generated from the tourism sector in 2019
education and skill building.
registered a 24.1 per cent rise over 2018 to reach Rs
The State received various awards for development
45,011 crore.
in the Information Technology sector over the recent
The public recognition of Kerala’s achievements
period. These include the SKOCH Award 2019 for
in the tourism sector can be gauged by the national
its e-procurement project; the Digital India Award
and international awards that the State has received.
2019 for initiatives providing comprehensive web and
Prominent among these are the United Nations World
mobile-based services to its citizens; the Tech Sabha
Tourism Organisation (UNWTO) Award for Emerging
Award 2019 for co-ordinating flood damage assessment Global Destinations – Accessible Destination Award
survey process in Kerala; and the Governance Now 2019 for Barrier-free Tourism Project implementation,
Digital Transformation Award 2019 for projects such as the Pacific Asia Travel Association (PATA) Grand
K-Fi-Digital Infra, Kerala State Portal and m-Keralam Award for Kerala Tourism’s “Human By Nature”
mobile app. Campaign, the Das Goldene Stadttor 2020 for Kerala
Innovations and startups Tourism’s “Human By Nature” Campaign, the PATA
In 2019, the Department for Promotion of Industry and Gold Award for the Kerala Tourism Campaign titled
Internal Trade, Government of India, ranked Kerala as “Come Out and Play,” the PATA Gold Award for the
the top performer among States in respect of creation of Kerala Tourism website, and the PATA Gold Award
a startup ecosystem. Under the Kerala Startup Mission, for women’s empowerment. The State also received the
an Integrated Startup Complex was created at Kochi, Lonely Planet Travel Award for Best Destination for
which is one of India’s largest innovation hubs. The Families 2018, the PATA Gold Award 2018 for the Best
Complex covered a space of 1.8 lakh square feet. Honeymoon Destination in India, and the World Travel
There are presently 2,900 registered startups in Mart Gold Award 2018 for (i) Responsible Tourism
Kerala. These cover more than four lakh square feet and (ii) Managing Success in Tourism. Kerala Tourism
of incubation space, and account for Rs 1,500 crore also won national-level awards such as the National
external investment, value creation of Rs 1,00,000 Tourism Award (2018) for Wayanad Responsible
crore, and an employee base of 25,000. In 2020, 399 Tourism Project under the Category Best Responsible
startups were registered in Kerala, a growth of 18 per Tourism Project, and Outstanding Achievement
cent over the previous year. To promote innovations Award for Responsible Tourism Mission at the Indian
in the State, the Kerala Development and Innovation Responsible Tourism Awards (IRTA 2018).
Strategic Council has been formed. In 2020, the Covid-19 pandemic brought tourism
 INTRODUCTION | 5

to a standstill, affecting the livelihood of entrepreneurs rice to the affected people and people living near the
and people employed in the sector. Tourism will play coastal areas free of cost. In the wake of the Covid-19
a crucial part in the post-pandemic revival of the pandemic, the Civil Supplies Department of Kerala is
economy, and the Government of Kerala is gearing up in the forefront in ensuring that no one is deprived of
for the next stage of advance of the industry. essential commodities in this pandemic. Essential items
Infrastructure: A Big Push are distributed free of cost to all ration card holders.
Infrastructure development received a push with the There are 88 lakh ration card holders in the State.
revamping of Kerala Infrastructure Investment Fund In April 2020, the Government provided a 17-item
Board (KIIFB). The revamping of the Board in 2016 Athijeevana kit to 84 lakh ration holders in the State.
significantly altered its scope, power and structure. (Details of public rationing in this sphere are given
The Board is an innovative mechanism to build elsewhere in this volume.)
infrastructure by raising funds through extra-budgetary Scheduled Tribes and Scheduled Castes
sources, and has shown that it has the potential to bring The emphasis of Government policy has been to
about a major transformation in the State by ushering strengthen welfare programmes, strengthen educational
in medium and large infrastructure projects. provisioning through scholarships and facilities for
Some of the major projects financed by KIIFB home study, skilling, and new initiatives in agriculture
include the Kerala Fibre Optic Network, Petrochemical for persons belonging to the Scheduled Tribes. Similar
and Pharma Park in Kochi, Coastal and Hill Highway, programmes in the sphere of welfare programmes,
Transgrid 2.0, Life Science Park in Thiruvananthapuram, education, and skilling were implemented for persons
and the Hi-Tech School Programme. The KIIFB has belonging to the Scheduled Castes. The Government
approved 895 projects of more than Rs 60,000 crore, also implemented the Ambedkar Village Development
an investment that will play a major role in the future Scheme, a scheme for development of amenities in
economic growth of the State. settlements where there is a concentration of homes of
Certain major infrastructure projects were people belonging to the Scheduled Castes.
completed over the current Plan period. The Kochi Local Governments: Unleashing People’s Potential
Metro started operations. The Kannur International In 1996, the LDF Government initiated the first phase
Airport was inaugurated on December 9, 2018. The of the People’s Campaign to make Kerala a model in
highway bypasses at Kollam and Alappuzha have devolved governance. In 2016, the second phase of the
become operational. The construction of the Hill People’s Campaign was launched to further strengthen
Highway and Coastal Highway are progressing. The local governments. In the past four years, local
Government of Kerala launched the “Oorja Kerala governments have streamlined the planning process
Mission” in 2018, aimed at the integrated development and improved the implementation of Plans, recording
of the electricity sector in the State. Transgrid-2, one
high levels of plan expenditure. A notable feature of this
of the components of the Mission, is a major initiative
period has been the formulation of District Plans.
aimed at strengthening the transmission network to
At present, there are 1200 local governments in
meet the future energy requirements of the State.
Kerala, including 941 Gram Panchayats, 152 Block
Housing Panchayats, 14 District Panchayats, 87 Municipalities,
LIFE is a remarkable and unique system of providing and 6 Municipal Corporations. The recently held
modern decent housing to homeless people. It envisages election to local bodies in the State in December 2020
higher investment than all previous housing schemes has brought in new governments at the helm of affairs
in the State, and provides individual houses and in all the tiers of government.
apartment housing. More than 2.5 lakh houses have Local Governments have played a crucial role
been constructed under LIFE Mission. LIFE has been a in times of crises, like during the floods and other
very popular scheme of the Government. disasters of 2018-2019, and in the management and
Food Security for All containment of the Covid-19 pandemic.
The Government took steps for the successful The frontline role played by local bodies and their
implementation of the National Food Security Act, elected representatives during the Covid-19 pandemic
2013 and ensured food security at all times, including has been widely acclaimed. Some of the noteworthy
crisis periods. As part of relief measures during the activities of local bodies in this period include:
floods of 2018, the Government provided 15 kg of the establishment and management of community
6 | KERALA DEVELOPMENT REPORT 2021

kitchens during lockdown; cleaning and disinfection Human Development

activities; organising and running “break the chain” and Education
social distance campaigns and awareness programmes; The visible outcome of the State Government’s “Public
providing accommodation, food and other essential Education Rejuvenation Mission” that started in
support to migrant (“guest”) workers; coordinating home 2016, and aimed to raise the quality of infrastructure,
quarantines, counselling and isolation; establishing teaching, and learning in State schools, can be seen
institutional quarantine for persons returning to Kerala in the massive shift of students from unaided to
from other parts of India and abroad; establishing government and aided schools between 2016-17 and
and managing Covid First Line Treatment Centres; 2020-21. In this period 6.8 lakh additional children
engaging personnel in health institutions managed by enrolled in government and aided schools. Over four
Local Governments; purchasing medicines and other years and a half, the Government invested heavily in
equipment for hospitals run by Local Governments; new-generation public schools throughout Kerala,
distributing free medicines; implementing local with the objective of making the best possible school
economic plans to help people who lost jobs; increasing education available to every child in the State.
food production and self-sufficiency in the field of As part of the hi-tech school project, Kerala
agriculture under the Subhiksha Keralam programme; Infrastructure and Technology for Education (KITE)
and making arrangements for local dissemination of has converted 44,705 classrooms (standards 8 to 12)
internet connectivity for school children. to hi-tech classrooms in 4,752 government and aided
Science and Technology schools in the State. Smart classrooms and computer
The establishment of the Institute of Advanced Virology laboratories for primary classes are nearing completion.
in 2019 is a significant milestone in the 13th Plan The Government has upgraded school infrastructure in
Period. The institute, which is envisioned as an institute 184 schools with funds from KIIFB.
of global standards, will focus on research, diagnosis In many parts of India and the world, school children,
and management of emerging and re-emerging particularly underprivileged children, were left stranded
infectious viral diseases. Scaling up the activities of the by the pandemic. The Government of Kerala reached
Kerala School of Mathematics by starting an integrated out to school children and, with the support and efforts
MSc and PhD programmes and strengthening the of local governments and communities throughout the
programme to recruit post-doctoral scholars are other State, was able to ensure academic continuity to them.
significant achievements. Women empowerment Despite the pandemic, this year’s academic session
programmes were undertaken to support women who began, as in previous years, on June 1. Online classes
underwent career breaks and to attract women and girl were conducted through a scheme titled “First Bell”
students to the study of the natural sciences. run by KITE.
Cooperatives and the Kerala Bank Health
Cooperation and primary cooperatives are Kerala’s Another salient feature of Kerala’s progress in human
strength, a rich legacy of our freedom movement. development is its public health system, and the access
People’s confidence in these institutions is part of that all its citizens have to preventive and curative
Kerala’s historical heritage. Today, these institutions health at all times. This aspect of its development path
form the backbone of much rural economic activity in has won Kerala national and international appreciation.
the State. One of the major achievements of the present The health sector has also been a model for other States
Government has been to strengthen the cooperative of India in dealing with public health exigencies, as its
system by forming the Kerala Bank, which will be one experience in dealing with the Nipah virus outbreak in
of the largest banking networks in the State, in 2019. 2018 and the Covid-19 pandemic has shown.
The new Bank has been formed by merging all the The Aardram Mission of the Government has
District Cooperative Banks with the Kerala State Co- helped improve the functioning of government
operative Bank. A Co-operative Policy was formulated hospitals, from Primary Health Centres to government
for the first time in the State in 2019-20. The policy Medical Colleges. Primary Health Centres (PHCs) are
envisages a focused development for the co-operative being converted to Family Health Centres (FHCs).
sector with the view to ensure sustainable development Every Family Health Centre has at least three doctors
of the State. and four nurses available through the day. A list of 53
 INTRODUCTION | 7

common ailments has been prepared; all of those are Gender

treated at the FHC. In the first phase in 2017-18, the Though Gender Budgeting has been central to Kerala’s
Government identified 170 PHCs for conversion to plans process since the 11th Plan, it was only in 2017-
FHCs. In the second phase in 2018-19, 504 PHCs were 18 that the first Gender Budget document for the State
selected for development into FHCs. Under the third Plan, which aggregated resources earmarked for girls/
phase of the Aardram Mission, 212 PHCs are being women across departments, was released. More than
converted into FHCs. In addition, 76 Community 10 per cent of Plan funds are allocated for gender
Health Centres (CHCs) will be converted into Block development. As a proportion of the Plan, the gender
Family Health Centres. Infrastructure in hospitals at the budget has increased from 11.5 per cent in 2017-18 to
taluk and district was upgraded and outpatient facilities 14.6 per cent in 2018-19, and 16.8 per cent in 2019-
in large hospitals were made more people-friendly as 20. The gender budget constituted 18.4 per cent of the
part of the Aardram Mission. Because of the improved Plan for 2020-21. In 2021-22, it is almost one-fifth
implementation of the health insurance scheme, more (19.5 per cent) of the State Plan.
income-poor patients are getting free treatment. In 2017, the Government started a new department
Kerala’s Covid-19 containment strategies were for the welfare of women and children in the State
varied, and its popular messaging effective. The “Break by bifurcating the Social Justice Department. The
the Chain” campaign was initiated by the Government Department of Women and Child Development
to reduce the spread of the virus, through physical was formed to give more focus to activities aimed at
distancing, regular hand washing, and use of sanitisers. social assistance and the empowerment of women and
Mass sanitisation campaigns were conducted, and children. Within less than three years of its formation
sanitisers and handwashing facilities were installed the Department initiated a range of programmes
in public spaces. The Government also mobilised its focussed on the prevention of gender-based violence
resources to produce hand sanitisers and masks. Special and child abuse, for the rehabilitation of survivors,
care was accorded to migrant workers. (A more detailed gender awareness creation, good parenting, care and
account of health policy during the pandemic can be assistance to vulnerable women such as street dwellers,
found elsewhere in this volume.) widows, assistance to female-headed families to meet
Labour unexpected financial crises (Athijeevika), and for
Key interventions in the field of labour were in respect the vocational training of women living in welfare
of the protection of labour rights, strengthening labour institutions.
legislation, increased wages, protecting livelihoods in The Government of Kerala took up measures to
each phase of crisis, protecting migrant workers, and ensure the freedom and safety of women through
expanding programmes of widespread and inclusive mechanisms such as the 181 Women Helpline, a
skilling. 24/7 emergency response service for women in need;
The Government took special care of migrant the “Ente Koodu” project, which provides shelter
workers during the Covid-19 pandemic. There were for women and children from 5 pm to 7 am; “She
approximately five lakh migrant workers at the time Lodges,” a service to ensure accommodation facilities
of lockdown in Kerala. They were sheltered in 21,556 for women travellers; and district-level woman police
camps all over the State. Food, water, and recreational patrols and police control rooms for women in all
facilities were provided to them in the camps. districts. The Government enacted a law to ensure that
Social Schemes women workers are entitled to safe seating facilities in
Pensions workspaces.
Welfare pensions have increased from Rs 600 per It has been the policy of the State Government to
beneficiary in 2016 to Rs 1600 per beneficiary in ensure equal opportunities for women in all spheres
2021. The number of social security pensioners, which of public employment, and to facilitate their equal
was 34 lakh in 2015-16, has increased to 48.6 lakh in access to public spaces in the State. The Government
2021. Among social security pensioners, 30 per cent of Kerala appointed women sub-inspectors in police
received pensions for the first time during the period stations, and increased the representation of women in
of this Government. The Government paid pensions the police to 25 per cent. Women police battalions and
two months in advance when the pandemic struck. commando platoons were also established. For the first
Measures were taken to ensure that the money reached time in history, women have been inducted into the
the homes of beneficiaries without delay. Kerala Fireforce Service; 100 posts have been created in
8 | KERALA DEVELOPMENT REPORT 2021

this regard. Of the total number of persons elected to people-oriented handling of the crisis by the State won
local bodies in the elections of 2020, 54 per cent were admiration from all over the State – and from other
women. parts of India and the world.
Specific budgetary allocations were made under an After the floods of 2018, the Government laid out
umbrella scheme called Mazhavillu in the 13th Plan a vision for a more climate-resilient State. The crisis
period to ensure transgenders a life of dignity and basic was seen as an opportunity to rebuild, ensuring better
rights to education, health care, and employment. standards of living to all sections of society. As part of
Persons with disabilities this effort, the Rebuild Kerala Initiative was started. The
In 2019, the Ministry of Social Justice and Government formulated a Livelihood Development
Empowerment, Government of India, judged Kerala Package to revive the livelihoods lost in the floods.
to be first among the States of India in promoting Managing the Pandemic
empowerment among persons with disabilities. The The Government of Kerala took early action with
award is in recognition of the innovative projects respect to the pandemic. The State was the first to
implemented by the Government for welfare, announce a substantial programme, much ahead of
protection of rights, and empowerment of persons with other States and the Central Government, to address
disabilities. In 2018-19, the Kerala State Handicapped the anticipated economic impact of the Covid-19
Persons Welfare Corporation received the award for pandemic in the form of a Rs 20,000 crore package.
Best Channelising Agency of National Handicapped The many-sided response of the State is discussed
Finance and Development Corporation. in detail in another part of this report. Among
Kerala has adopted a rights-based comprehensive the highlights is that as an immediate measure the
life cycle approach for the welfare of persons with Government set aside Rs 1320 crore to disburse welfare
disabilities. The focus of the approach has been pensions in advance for two months in March 2020.
undertaking prevention initiatives, early screening, Another Rs 100 crore was allocated to provide Rs
early intervention through District Early Intervention 1000 each for families that were not eligible for welfare
Centres (DEICs) and other health and social sector pensions. In the subsequent two months, Rs 2000 crore
institutions, education support through special was disbursed as loans through the Kudumbashree
anganwadis, Buds Schools, Model Child Rehabilitation scheme, with the State Government bearing the interest
Centres, Special Schools, inclusive education and component. In addition, Rs 2000 crore was set aside to
vocational training, community based rehabilitation provide jobs under the employment guarantee scheme.
and assisted living projects among others. The State Government created a five-tier structure
Engagement with Kerala Diaspora outside the health infrastructure comprising home
The Government took important measures to increase quarantine, Domiciliary Care Centres, Covid
its engagement with the Kerala diaspora by forming First-Line Treatment Centres, Covid Second Line
the Loka Kerala Sabha. The Loka Kerala Sabha aims Treatment Centres and designated Covid Hospitals.
to promote the unique culture and heritage of Kerala These provided care and support to Covid patients.
among Malayali expatriates. It comprises all members The Government of Kerala also appointed an Expert
of the State Legislature, Members of Parliament Committee with Dr B Ekbal, Member, State Planning
representing Kerala, and persons elected from non- Board, as Chair to advise the Government on Covid-19
resident Keralites (NRKs) living within and outside control. The committee met every day from March 20,
India. Two Loka Kerala Sabhas have been held in 2020 to March 20, 2021 (and has met once a week
2018 and 2020. Measures have been already taken to thereafter) and submits its findings and suggestions to
implement the suggestions that emerged in the first the Government of Kerala.
Loka Kerala Sabha. The suggestions of the second event Covid-19 treatment was made free in Government
are being reviewed. hospitals, including testing. At all times, food was
Resilient Kerala also provided free of cost to all patients. In addition,
The State of Kerala has demonstrated an exceptional psychological support was also provided to all Covid
capacity to deal with crisis. The floods of 2018 saw positive patients and other persons in quarantine
public action reach new heights. The Government through dedicated psychological support team.
responded to the crisis swiftly, undertaking immediate To sum up, the hallmarks of Kerala’s response to
rescue and relief work. The speedy, meticulous, and Covid-19 included a strong public health infrastructure
 INTRODUCTION | 9

built under Aardram Mission, information the early days of the Covid-19 outbreak
dissemination at the highest level spearheaded by the helped to flatten the curve and keep the
press conferences of the Chief Minister, at which he number of cases at a low or manageable
provided up-to-date information on the status of level . . . Fourthly, there would be a free
and continuous flow of information, as
the pandemic and government action. It included
befits a State that takes the rights of its
provisioning of food and shelter to the needy in the citizens seriously. Chief Minister Pinarayi
most difficult times. Vijayan’s daily press conferences and the
The Health Department also launched e-Sanjeevani constant communication the government
telemedicine services in Kerala on June 10, 2020. They maintained with the people at large built
provide services in a centralised manner. DISHA is the and sustained trust at a high level. (Ram
State hub managing the telemedicine activities for the 2020)
State. The Kerala of the future will continue to build on its
In every one of the crises it has had to face, the strengths in social spending, social welfare, and social
Government of Kerala has put people’s welfare at the justice. It will continue to use these as a foundation for
centre of its policy response. With respect to the State’s further and accelerated growth in the productive forces
response to the pandemic, as early as May 2020, one and production in the economy. We look forward to
of India’s most senior journalists wrote thus of Kerala’s sustained efforts to apply science, technology, modern
policy approach: skills, and the skills available to a “knowledge economy”
The government gave four assurances to enhance growth in agriculture, allied activities,
to the people and implemented them modern industry, infrastructure-building, and income-
in letter and spirit. It also did so with bearing services. Economic policy will be designed to
complete transparency. First, no one modernise and enhance the system of higher education,
would go hungry and without a safety
and to provide Kerala’s youth with the best forms of
net of essential commodities and services.
skilled employment available in a modern economy.
Every agency and arm of the government,
backed by armies of volunteer citizens, This Report deals with the initiatives and
worked hard to deliver on this promise. achievements of the Government and people of Kerala,
Secondly, nobody would go without and with the challenges they face in certain salient
shelter. The way the State looked after sectors of the economy. It is a description and analysis
large numbers of highly vulnerable of economic policy and development in Kerala, with
migrant workers was certainly a model an emphasis on the years from 2016 to 2020 (and the
for other States and also for the central first four years of the Thirteenth Five-Year Plan). It
government. Thirdly, everyone would is presented to the public as a document of reference
have access to the health system, with its
and a guide for future efforts in the field of economic
three tiers, as needed. The government’s
planning in the State of Kerala.
policy approach was unwaveringly to
follow the science . . . . Free testing was References
part of the Kerala safety net. There is some Ram, N. (2020), “Kerala’s Exemplary Response to the
evidence to show that proactive testing in Pandemic Crisis,” Kerala Calling, May.
10 | KERALA DEVELOPMENT REPORT 2021

Chapter 2
Agriculture and Allied Activities
Agriculture in Kerala: An Assessment of Progress pathways, and not a specific programme of action.
and a Road Map for the Future It is submitted for broad-based discussion among
Introduction farmers, scholars, and activists, in order to facilitate the
Over the last 50 years, agriculture has had a special formulation of policies in the future.
and unique place in Kerala’s economy. To begin with, Major Features of Kerala’s Crop Economy
agriculture served as a driver of economic growth by Kerala’s agricultural sector is marked by a set of features
expanding the size of the rural home market. It was that sets it apart from other Indian States.
the presence of high-value, commercial crops in the First, the share of non-agricultural area in the total
cropping cycle – spices, plantation crops and rubber geographical area of Kerala rose from about 7 per cent
– that helped raise Kerala’s rural incomes substantially. in the mid-1970s to about 12 per cent in 2018-19.
In 2018-19, spices and plantation crops accounted for
Concurrently, the share of net sown area in the total
23 per cent of the total Value of Output (VOO) from
geographical area fell from about 57 per cent to about
crops.1 As a consequence, VOO per hectare (ha) of
53 per cent. In addition, the share of fallow land (as a
net sown area in Kerala was Rs 1745, comparable to
sum of current fallow, fallow other than current fallow
Punjab’s corresponding figure of Rs 1813.
and cultivable waste) in the total geographical area rose
Agriculture was also a successful contributor to
from about 1.7 per cent to 3.6 per cent.
structural change in Kerala’s economy. In 2018-19,
This feature of Kerala’s agriculture is significant.
agriculture and allied sectors contributed only nine per
Because of the inflow of remittances and the sharp
cent to the Gross State Value Added (GSVA). Unlike
growth of the services sector, land is a highly valued
India as a whole, this fall in agriculture’s contribution
commodity. Land prices in Kerala are among the
to GSVA in Kerala was accompanied by a sharp fall in
highest among Indian States. The demand for land for
the number of workers employed in the primary sector;
in 2018-19, only 19.3 per cent of the workers were non-agricultural purposes – construction of houses and
employed in the primary sector in Kerala.2 non-farm establishments – is high. As a result, there
The important question that arises, then, concerns is enormous pressure on agricultural land, and the
the future of Kerala’s agriculture. Will it mirror the conversion of agricultural land into non-agricultural
experience of the advanced capitalist world, where land has been taking place legally and illegally. Unless
the agricultural sector’s share has shrunk to less than returns from agriculture rise faster than the returns
three per cent of the economy, and where production from non-agricultural land, these trends are likely to
is organised on corporate, industrial lines? Or will continue and intensify over the next decade.
the sector be able to modernise itself to organise Secondly, within the land used for agricultural
agricultural production on a larger scale, but based on purposes, there was a shift from food grain towards
non-corporate, more collective forms of production non-food-grain crops. From about 9.5 lakh ha in 1970-
organisation and the adoption of advanced technology? 71, the area cultivated with food grain fell to 2.9 lakh ha
Alternatively, will agriculture continue to retain the in 2004-05 and 2 lakh ha in 2018-19. The precipitous
features of a small peasant economy, tied to a low-yield decline in the area cultivated with paddy was the major
low-income cycle, striving to protect the livelihoods of reason for the shift. While a part of the area cultivated
landholders? with food grain was diverted to non-agricultural uses,
This paper attempts to provide an assessment of another part was used to cultivate non-food-grain crops.
the agricultural sector in the State over the last decade Thus, the area cultivated with rubber rose from 1.8 lakh
and point to possibilities and challenges over the next ha in 1970-71 to 4.7 lakh ha in 1999-00 and 5.5 lakh
decade. The objective is to ensure the consolidation of ha in 2018-19. The area cultivated with coconut rose
past gains, and to view a future based on those gains. from 7.2 lakh ha in 1970-71 to 9.2 lakh ha in 1999-00,
This chapter is a broad statement of prospects and though it fell to 7.6 lakh ha by 2018-19.

1
All figures on VOO are from the Central Statistics Office (CSO).
2
The employment figures are from the NSSO’s Periodic Labour Force Survey (PLFS) for 2018-19 as per the current
weekly status.
 AGRICULTURE | 11

The shifts in the cropping pattern after the 1970s crops, but particularly in the cultivation of labour-
also implied that Kerala’s fortunes in agriculture were intensive food grain. This phenomenon demands rapid
determined largely outside Kerala. The free trade mechanisation of agricultural tasks. However, the small
policies of the Central Government after 1994 had a size of most farms and the absence of machines suitable
strong adverse impact on Kerala’s agricultural sector. The for purchase or use in these small farms have meant that
prices of most commercial crops became increasingly the density of use of implements in Kerala is lower than
integrated with global agricultural prices. Further, in other States.
many of the promotional schemes with respect to these Sixthly, though Kerala has 41 west-flowing and three
crops were designed and implemented by Commodity east-flowing rivers, and has an annual rainfall of about
Boards under the Ministry of Commerce. Under the 3000 mm, the extent to which it is able to retain, store,
policies of neoliberalism, budget allocations for these and use these waters for agricultural purposes is still
Boards declined, and the production and marketing inadequate. The absence of adequate irrigation is one
institutions supported by them were weakened. Such reason for the low productivity of crops. In addition,
withdrawal did not just affect the sector adversely, official data show a fall in the index of multiple cropping
but also burdened the State Government with new in the State. If the index of multiple cropping was 1.36
responsibilities at a time when its own fiscal space was in 2001, it fell to 1.30 in 2011 and 1.26 in 2016.
shrinking. In part, blame could be placed on the lop-sided
Thirdly, the workforce involved in Kerala’s emphasis on paddy cultivation in the design of irrigation
agriculture has specific features. Data from the Situation projects; this led to disregard for the water requirements
Assessment Survey (SAS), conducted by the NSSO in of other crops. But the historically inadequate emphasis
2012-13, showed that only 27 per cent of agricultural in policy on small and medium irrigation projects, as
households in Kerala reported agriculture as a major well as minor-irrigation structures like check dams and
source of income. The corresponding share for India as lift irrigation projects, is also to be blamed. Further,
a whole was 61 per cent. To put it sharp, Kerala has a the need for larger reservoir-like storage structures
substantially smaller share of “full-time” farmers than to store monsoon waters in the rivers in conjunction
India as a whole; most are “part-time” farmers. This with smaller rainwater harvesting structures was never
feature has a major influence on the extent of time, considered a priority item in previous plans in the State.
the amount of effort, and the intensity of care given Seventhly, productivity-levels are low in Kerala
to farms. Most farms are maintained unscientifically, also because of unscientific and imbalanced farming
leading to low levels of investment, productivity, and practices.
income. This is also one reason why the extent of fallow 1) Kerala is one of the lowest fertilizer-consuming States
land has risen over the years. in India. In 2018-19, Kerala’s consumption of N, P,
Fourthly, Kerala has a predominance of small and K fertilizers was 36.4 kg per ha, which was the
and marginal farms; the average holding size, as per lowest among all Indian States. The corresponding
the Agricultural Census, is 0.18 ha or 0.45 acre. The figure was 186.4 kg per ha in Tamil Nadu, 126 kg
smallness of farms is a major obstacle to farmers reaping per ha in Maharashtra, 224.5 kg per ha in Punjab,
the benefits of economies of scale as well as adopting 173.3 kg per ha in Andhra Pradesh and 161.1 kg
modern technologies, particularly machines. Farm size per ha in West Bengal.
is also a constraint in the aggregation of produce at the 2) Kerala’s consumption of N, P, and K fertilizers has
local-level, thus weakening the bargaining power of declined alarmingly over the last decade, from 106.2
farmers in output markets. As a result, the producer’s kg per ha in 2010-11 to 43.8 kg per ha in 2015-16
share of the consumer’s rupee in Kerala’s agricultural and 36.4 kg per ha in 2018-19. The implications of
value chains is low. While farmer’s collectives, such this decline for the sustenance of soil health have
as cooperatives or farmer producer companies (FPC), not been adequately studied.
can provide alternatives, their presence in the sphere of 3) Wide gaps exist between the requirement and sales of
production is not a dominant feature of the State. major fertilizers in Kerala. In September 2019, 3500
Fifthly, given the rise in the share of non- metric tonnes of di-ammonium phosphate were
agricultural manual labourers in the work force, there required, while only 1831 metric tonnes were sold.
are complaints related to the shortage of agricultural Similarly, 11,000 metric tonnes of muriatic of potash
workers in Kerala’s farms. Agricultural activities were required, but only 8339 metric tonnes were
are adversely affected due to this constraint across sold. On the other hand, 9000 metric tonnes of urea
12 | KERALA DEVELOPMENT REPORT 2021

were required, but 11,578 metric tonnes were sold. adverse impact of the two major floods. In sum, there
Such imbalances, at wide variance from the official were no major stretches of growth in Kerala’s agriculture
Package of Practices, have been a major constraint on after 1997-98.
the scientific practice of agriculture in the State. After 2015-16, as part of the conscious policy
Finally, while agriculture in Kerala is practiced in interventions under the 13th Plan, the downward slide
homesteads, marked by inter-cropping and multiple- in agriculture was halted. If floods had not hit Kerala in
cropping, most plan schemes of the Government 2018 and 2019, the agricultural growth rate in 2018-
are crop-centred. More recently, the focus of the 19 and 2019-20 would have been positive and high.
Department of Agriculture has turned to planning for Estimates show that damages to the crops sector due to
agroecological units, which is commendable. However, the floods in 2018 alone were to the tune of Rs 2,722.5
the design and implementation of schemes continue crore. These included the destruction of irrigation
to be crop-centred. In addition, while livestock and systems and structures, destruction of crops, agriculture
fisheries are an integral part of the homestead systems buildings and assets and soil degradation. Estimated
of farming, these components are the domain of production losses in the crop subsector were estimated
different departments, which presents challenges in the at Rs 3,558.2 crore. About 89,610 ha of crops suffered.
convergence of activities at the ground-level. About 30,945 ha of perennial crops were destroyed;
Performance of Agriculture during the 12th Five- pepper, arecanuts, banana and coconut were the
Year Plan and 13th Five-Year Plan most affected. Over 109 million trees and plants were
Trends in Gross State Domestic Product (GSDP), completely damaged (Government of Kerala 2018).
Gross State Value Added (GSVA) and Value of In addition to GSDP and GSVA, we also use data
Output (VOO) on value of output (VOO) in agriculture put together
For the data on Gross State Domestic Product (GSDP) by the Central Statistics Office (CSO) (Figure 2.2).
and Gross State Value Added (GSVA) from agriculture Here too, we see that the VOO fell between 2011-12
in Kerala, two series are constructed: the first of real and 2015-16 by about Rs 5741 crore. There was no
GSDP between 1980-81 and 2013-14 based on the sign of revival at least till 2017-18.
base year of 2004-05 and the second of real GSVA Another interesting feature has been the declining
between 2011-12 and 2018-19 based on the base year share of the crop sector within the fortunes of the larger
of 2011-12 (Figure 2.1). The GDP from agriculture rubric of agriculture and allied sectors. If we consider
began to rise from 1987-88 till 1997-98, and stagnated GSVA figures, the crop sector had a share of 60 per
thereafter till 2013-14. The GSVA from agriculture fell cent in the overall GSVA in 2011-12 (Table 2.1). This
sharply between 2011-12 and 2015-16. Between 2011- declined to 53.2 per cent 2019-20. On the other hand,
12 and 2015-16, the GSVA from agriculture fell by Rs the share of the livestock component rose from 23.3 per
6258 crore in real terms. Thereafter, it stagnated and cent to 26.7 per cent. The share of fisheries component
then fell again in 2018-19 and 2019-20 because of the also rose from 7.8 per cent to 10.2 per cent.

GROSS STATE DOMESTIC PRODUCT IN AGRICULTURE, AT CONSTANT GROSS STATE VALUE ADDED (GSVA) FROM AGRICULTURE, AT
PRICES, BASE YEAR 2004 -05, IN RS MILLION CONSTANT BASIC PRICES, BASE YEAR 2011-12, IN RS MILLION
200000 350000

180000

300000 290459 286926

160000
259988
247442
140000 250000
231919 235434
227877 224779
214713
GSDP, IN RS M ILLION

120000
GSVA, IN RS M ILLION

200000

100000

80000 150000

60000

100000
40000

20000 50000

0
2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20

Figure 2.1 Trends in GDP and GSVA from agriculture, Kerala, 1980-81 to 2019-20, at constant prices,
in Rs million
Source: Central Statistics Office
 AGRICULTURE | 13

4000000

3500000 3349004
3294449

3034521
3000000 2853427
2774926 2809056 2798000

VALUE OF OUTPUT, I N RS LAKHS

2500000

2000000

1500000

1000000

500000

0
2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18

Figure 2.2 Value of output from all crops, Kerala, in 2011-12 prices, 2011-12 to 2017-18 in Rs lakh
Source: Central Statistics Office

Table 2.1 Share of GSVA from each component within the total GSVA from agriculture, forestry and fishing,
Kerala, 2011-12 to 2019-20 in per cent
Year Share of GSVA from each sector (%)
Crops Livestock Forestry and Fishing and Total
logging aquaculture
2011-12 60.0 23.3 8.9 7.8 100.0
2012-13 58.5 25.1 8.8 7.7 100.0
2013-14 56.6 26.9 7.9 8.7 100.0
2014-15 53.8 27.8 9.0 9.4 100.0
2015-16 52.2 29.1 9.5 9.1 100.0
2016-17 53.5 27.1 10.1 9.3 100.0
2017-18 53.2 27.0 9.6 10.2 100.0
2018-19 52.0 27.0 9.9 11.1 100.0
2019-20 53.2 26.7 9.9 10.2 100.0
Source: Central Statistics Office

If we go by data on crop-wise VOO, most crops fell in both the years.

grown in Kerala were affected adversely by the downturn There was a significant rise in Plan and other
of agricultural growth after 2011-12 (Figure 2.3). The allocations to the department over the 12th and 13th
only exception appears to be spices and condiments, Plan periods (Table 2.2). The allocation to agriculture
where a moderate growth was recorded due to a better from the Plan schemes, including State and Central
performance in cardamom production. sector schemes, the Rural Infrastructure Development
Most crops other than cardamom suffered a decline Fund (RIDF) and the Rebuild Kerala Initiative (RKI)
in production after 2011-12 (Figure 2.4). There was a as well as under the Kerala Infrastructure Investment
stemming of the decline, and even a marginal revival, Fund Board (KIIFB; outside the plan), rose by 221 per
in the production of some crops during the 13th Plan cent between 2011-12 and 2020-21. The same was true
period. Examples are paddy, pulses, banana and rubber. for the allocation to the Department of Soil and Water
The floods in 2018 and 2019 were major setbacks to the Conservation and the Kerala Agricultural University.
efforts to revive production in agriculture during the At the same time, expenditures have lagged behind
13th Plan period. Production in many crops drastically allocations, and the crisis of State finances in Kerala
Table 2.2 Allocation and expenditure under the plan schemes and through KIIFB in agriculture, nominal figures, Kerala in Rs crore
Department of Soil and Water
Department of Agriculture and Farmer’s Welfare Kerala Agricultural University
Year Conservation
Plan# RIDF RKI KIIFB Total Plan# RIDF RKI Total Plan# RKI Total
Allocation
2011-12 494.9 5.0 - - 499.9 4.1 13.0 - 17.1 45.0 - 45.0
2012-13 704.4 5.0 - - 709.4 4.8 16.0 - 20.8 55.0 - 55.0
2013-14 803.3 5.0 - - 808.3 5.6 20.0 - 25.6 60.0 - 60.0
2014-15 938.3 0.0 - - 938.3 8.6 30.0 - 38.6 63.0 - 63.0
2015-16 626.9 5.0 - - 631.9 8.4 35.0 - 43.4 63.0 - 63.0
2016-17 758.5 7.0 - - 765.5 10.3 38.0 - 48.3 65.5 - 65.5
2017-18 894.6 7.0 - - 901.6 11.6 40.0 - 51.6 75.0 - 75.0
14 | KERALA DEVELOPMENT REPORT 2021

2018-19 1016.9 10.0 - 14.3 1041.2 12.7 44.0 - 56.7 82.5 - 82.5
2019-20 1021.9 10.0 81.9 7.2 1120.9 13.8 44.0 60.9 118.7 82.5 8.0 90.5
2020-21 750.1 7.5 350.3 - 1107.9 12.1 33.0 - 45.1 71.1 - 71.1
Expenditure
2011-12 470.6 0.4 - - 470.9 2.5 11.8 - 14.3 44.0 - 44.0
2012-13 673.9 5.0 - - 678.9 4.0 16.1 - 20.1 54.0 - 54.0
2013-14 647.0 4.9 - - 652.0 3.1 20.0 - 23.1 57.1 - 57.1
2014-15 731.4 4.2 - - 735.6 8.6 29.0 - 37.5 33.5 - 33.5
2015-16 722.3 4.5 - - 726.7 6.0 32.4 - 38.3 27.4 - 27.4
2016-17 732.1 20.1 - - 752.3 5.9 40.7 - 46.6 42.2 - 42.2
2017-18 695.4 7.0 - - 702.4 5.0 40.0 - 45.0 32.9 - 32.9
2018-19 764.8 6.4 - - 771.2 3.0 17.0 - 20.1 21.3 - 21.3
2019-20 423.9 12.0 - - 435.9 2.2 7.6 - 9.8 28.2 - 28.2
2020-21* 487.2 6.7 - - 493.9 3.9 10.3 - 14.2 0.0 - 0.0
Note: KIIFB allocations are not part of plan allocations; #: Plan includes Plan schemes, Central schemes and State share for Central schemes;
* As on October 21, 2020
Source: Kerala State Planning Board
 AGRICULTURE | 15

PADDY PULSES
120000 2500

2093
100000 97889
95285
92603 2000

88148 88600
85739

80000
73605 1532
1500

60000

992 1016
1000

40000

613

500
393
20000
330

0 0
2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18

COCONUT TEA AND COFFEE

470000 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18

461785 45000
461319
459766
460000
456038
40000 39061
450292 38423 38466 38198
37619
450000 37089
35695
35000
440000

30000
430000
25809
25117 24641
24594 24486
25000 23701
420000 418068
22311

20000
410000
406110

15000
400000

390000 10000

380000 5000

370000 0
2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 TEA COFFEE

SPICES AND CONDIMENTS FRUITS AND VEGETABLES

2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18

600000 700000

615109
600810 598024 597959
600000 588847 587839
500000 563467

500000

400000

400000

300000

300000

200000

200000
161298
150801 150440
137932 142149 140833
134398

100000
100000

0 0
SPICES AND CONDIMENTS CARDAMOM BLACK PEPPER FRUITS AND VEGETABLES BANANA

RUBBER FLORICULTURE
1800000 12490
12486

1600000 1565580 1567736

12480

1400000
12470
1270258

12463
1200000

12460
1059006 1059741
994924
1000000

859570 12450
12446
800000
12441
12440
600000

12430
400000

12420
200000

0 12410
2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18

Figure 2.3 Trends in the value of output (VOO) in selected crops, Kerala, in 2011-12 prices, 2011-12
to 2017-18, in Rs lakh
Source: Central Statistics Office
16 | KERALA DEVELOPMENT REPORT 2021

RICE PULSES
700000 4500
4263

4000
600000
568993 578256
564325 562092
549275
534943 3409
521310 3500
508299 3246
500000
3128
3019
3000
436483
PRODUCTI ON, I N M T

PRODUCTI ON, I N M T
400000
2500
2300

2045 2103
2000
300000

1500 1711

200000

1000

100000
500

0 0
2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20

PEPPER AND GINGER TURMERIC AND CARDAMOM

Pepper Ginger Turmeric Cardamom

50000 25000
46298
45000
42132
40690
40000 20000
19500
37989 37955
36776 18350
37130
34065 34545 17147
35000
16000
PRODUCTI ON, I N M T

30000 PRODUCTI ON, I N M T 15000 14000

29408
25000
11535
10222 10222 10076
22989
20000 22064 21521 22044 10000
20478
18979
15000
8822
7946
15124
6904 6820 7112
6506 6694 6653
10000 11917 5000 6253

5000

0 0
2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20

BETEL NUT BANANAS AND OTHER PLANTAINS

140000 600000
132453
125926
121623 565829
118233 116839 545431 548425
120000 531299 536155
500000
514054 515607
108516
489322
100018 99925
100000
92755
400000
429060
PRODUCTI ON, I N M T

PRODUCTI ON, I N M T

80000

300000

60000

200000

40000

100000
20000

0 0
2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20

CASHEWNUT TAPIOCA
40000 3500000

37919
35000 36743
3000000

33375 2943919
30000
2662610 2697319
29715 2500000
2567953 2594084
2529729
27944 2458515 2479070
25000 2325007
25629
PRODUCTI ON, I N M T

PRODUCTI ON, I N M T

24733 2000000

20000

19444
1500000

15000
15635

1000000
10000

500000
5000

0 0
2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20
 AGRICULTURE | 17

COCONUT COFFEE
7000 70000

69230
69000

6000 68175 68175

5941 5921 5947 5873 68000 67700
5799

5379 5299
5000 5230 67000 66645
66465
PRODUCTION, IN M ILLION NUTS

4623

PRODUCTION, IN M T
66000
4000 65459

65000 64676

3000
64000
63476

63000
2000

62000

1000

61000

0 60000
2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20

TEA RUBBER
66000 900000
65174

800000

788940 800050
64000

62963 700000

62938 62230
648220
62000 600000
61505
PRODUCTION, IN M T

PRODUCTION, IN M T
60760
500000 540400 540775 540775
507700
60000 492500
59260
400000 438630

58000 300000

57903 57898

200000

56000

100000

54000 0
2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20

Figure 2.4 Trends in the production of selected crops, Kerala, 2011-12 to 2018-19 in metric tonnes (MT) and
million nuts
Sources: i) Department of Economics and Statistics; ii) Coffee Board; iii) Tea Board; iv) Rubber Board

after the floods of 2018 adversely affected expenditures with paddy. This was in contrast to earlier plan periods,
in 2019-20. An improvement is expected in 2020-21. where the area cultivated with paddy consistently fell.
In addition, spending in agriculture is also Secondly, the success story of the 13th Plan was in
undertaken by local government institutions. The vegetable production. Between 2015-16 and 2018-19,
actual expenditure by panchayats in agriculture rose Kerala could nearly double the area cultivated with
from Rs 67 crore in 2012-13 to Rs 285 crore in 2018- vegetables as well as production of vegetables (Table
19 and Rs 180 crore in 2019-20 (Table 2.3). If we add 2.4). The area rose from 46,500 ha to 82,166 ha and
expenditures by the Department and the panchayats, production rose from 6.3 lakh metric tonnes (MT) to
actual expenditures (not allocations) rose from Rs 12.1 lakh MT. This growth shift is corroborated by data
775.4 crore in 2012-13 to Rs 1066.4 crore in 2018-19, from the Central Statistics Office (CSO) on crop-wise
which is 137.5 per cent rise. VOO of vegetables in Kerala.
However, there appears to be a disconnect between the Major Achievements in the 13th Plan Period
extent of Plan allocations and the growth performance Some of the interventions in agriculture introduced
of the sector. A study should be initiated to assess the as part of the 13th Five-Year Plan can be considered
efficacy of plan expenditures in the agricultural sector as models for other Indian States. These interventions
to improve the efficiency of plan spending. This should involve assistance to farmers for production and for
be undertaken without any reduction in the extent of marketing. The Government of Kerala provides direct
overall plan assistance to agriculture. cash assistance of Rs 5500 per ha to every paddy
There were two bright spots in the field of agriculture farmer. In addition, Kerala’s local governments give
during the period of the 13th Plan. First, the downward another Rs 15,000 to Rs 17,000 per ha from their Plan
slide in the area cultivated with paddy was arrested. In funds as additional assistance to rice farmers. Further,
2015-16, 1.97 lakh ha were cultivated with paddy in from 2020-21 onwards, as part of a programme to
the State. In 2018-19, 1.98 lakh ha were cultivated discourage keeping rice land fallow, the Government
18 | KERALA DEVELOPMENT REPORT 2021

Table 2.3 Expenditure in agriculture by local government institutions, Kerala, nominal figures, 2012-13 to 2019-
20 in Rs crore
Year Expenditure in (in crore) Shares (%) of expenditure
Agriculture Production Total Share of Share of Share of
(A) sector (P) expenditure agriculture agriculture production
(TE) expenditure expenditure sector
in production in total expenditure
sector expenditure in total
expenditure expenditure
2012-13 67 154 1250 43.2 5.3 12.3
2013-14 104 226 1942 46.2 5.4 11.6
2014-15 110 240 2153 45.7 5.1 11.2
2015-16 125 242 2401 51.6 5.2 10.1
2016-17 178 373 2041 47.7 8.7 18.3
2017-18 301 660 2750 45.6 10.9 24.0
2018-19 285 674 3330 42.2 8.5 20.2
2019-20 180 455 2445 39.6 7.4 18.6
Source: Kerala State Planning Board

Table 2.4 Area and production of vegetables, Kerala, expenses, including the costs of seeds, planting material,
2015-16 to 2018-19 in ha and lakh MT fertilizer, pesticide and labour costs. After harvest,
Year Area (ha) Production (lakh MT) Kerala’s vegetable farmers receive base prices (similar to
an MSP) for 16 different vegetables. No other State in
2015-16 46,500 6.3
India has thus far announced a base price for vegetables.
2016-17 52,830 7.3 The State Government has promised that if the price
2017-18 69,047 10.0 falls below the base price, through Government outlets
2018-19 82,166 12.1 will buy the produce.
2019-20 96,313 14.9 In addition, Kerala pays an incentive price for
Source: Department of Agriculture and Farmer’s Welfare, rubber at Rs 170 per kg, and an MSP of Rs 32 per kg
Government of Kerala for coconut.
has provided an additional Rs 2000 per ha as a royalty In brief, Kerala’s agricultural policy has focussed on
payment. This payment is provided to farmers who do creating incentives for farmers by ensuring remunerative
not keep rice land fallow. Thus, Rs 23,000 to Rs 25,000 crop incomes.
per ha per year per crop is received by a rice farmer in During the period of the 13th Five-Year Plan, the
Kerala. After harvest, the State Government pays the downward slide in the area cultivated with paddy
highest Minimum Support Price (MSP) for paddy in could be arrested. The area under harvested paddy,
India. The Central Government’s MSP for paddy is has been maintained in a steady manner despite the
about Rs 1868 per quintal. The State Government adds severe and unfavourable weather conditions, which
a bonus of Rs 800 per quintal and procures paddy from lead to substantial crop loss across the State. The
the farmers at Rs 2700 per quintal. About 80 to 90 per area under paddy which was 1.97 lakh ha in 2015-
cent of rice produced in Kerala is procured by the State 16 could be maintained 1.98 lakh ha in 2019-20
Government directly. despite the unforeseen adversities of two consecutive
The Government of Kerala offers among the highest floods, Ockhi, and Covid-19 pandemic outbreak.
rates of cash subsidy for vegetable farmers in India. The A steady increase in production and productivity of
annual subsidy for vegetable farmers is Rs 25,000 per paddy is noticed from 2017-18 onwards. The highest
ha; for cool season vegetables, the subsidy is Rs 30,000 production and productivity for paddy over the last
per ha. Banana farmers received an annual subsidy of ten years, of 5.87 lakh tonnes and 3073 kg per ha
Rs 30,000 per ha. These subsidies cover all farming respectively was recorded in 2019-20 which is an
 AGRICULTURE | 19

increase of 12.3 per cent and 25.3 per cent compared seedlings have been distributed at the rate of 75 per
to 2010-11-levels. Specific policy interventions of the ward in a 60:20:20 ratio. The procurement of seed nuts
State Government, under which cultivation of paddy and production of seedlings as targeted are scheduled
was encouraged with increased subsidies, a bonus over and ongoing. The “Keragramam” programme for
the MSP and higher procurement, were instrumental increasing production and productivity of coconut
in preventing a further decline in the area cultivated through integrated management on cluster basis was
with paddy. Considering the pivotal role of paddy implemented in 206 Keragramams of 250 ha each in
land conservation in environment protection, royalty selected gram panchayats during the period 2016-17 to
to the owners of cultivable wetland at the rate of Rs 2019-20. Integrated crop management practices were
2000 per ha was introduced in 2020, for conserving the implemented on 40,457 ha. Irrigation facility has been
cultivable wetland including the paddy lands. increased to 3512.67 ha.
Procurement of paddy increased from 5.61 lakh With the objective of popularising cultivation of fruit
metric tonnes at the rate of Rs 21.5 per kg in 2015-16 crops in the State, comprehensive Fruit Development
to 7.01 lakh tonnes at the rate of Rs 26.95 per kg in Programme was popularised in 2020 promotion
2019-20. In 2020-21, the procurement rate has been of exotic fruits like litchi, rambutan, avocado, and
enhanced to Rs 27.48 per kg. mangostein in addition to indigenous fruits. So far
Vegetable production in the State has gained under this programme 1.31 crore fruit seedlings have
momentum over the past years. Production, which been distributed.
was 7.25 lakh metric tonnes from an area of 52830 ha In order to facilitate quality control of organic
(ha) in 2016-17, increased to 14.9 lakh tonnes from inputs, especially organic manures within the State,
an area of 96,313 ha in 2019-20. Government policy Biofertilizer and Organic manure Quality Control
gave support to vegetable cultivation in homesteads, Laboratory (BOQCL), the first of its kind in the State,
institutions, and by means of rain shelter cultivation. was established at Pattambi in 2020 in line with the
Support was also extended to vegetable clusters organic agricultural policy of the Government.
including urban, staggered, and graded clusters and for Considering the importance of crop choice and crop
micro-irrigation and fertigation. management prescriptions on a regional basis to ensure
With the Covid-19 pandemic threatening the economic, and ecological sustainability and farmer
availability of food supplies, the Subhiksha Keralam welfare, the Department of Agriculture Development
project was launched by Government of Kerala with the and Farmers’ Welfare decided to shift to planning and
objective of attaining food self-reliance by enhancing implementation of schemes based on the concept of 5
the area, production and productivity of food grain, agroecological zones and 23 agroecological units.
millets, vegetables, fruits, tubers and pulses in the State, The Kerala Farmers Welfare Fund Act 2018 came
enhancing incomes of farmers, employment generation, into effect for the constitution of a Welfare Fund Board
attracting youth and repatriates to agriculture, for the welfare of farmers. The Farmer Welfare Fund
strengthening animal husbandry and fisheries sector, Board has been established in 2020 to implement
and promoting organic farming. Fallow land cultivation the pension schemes and welfare programmes of
of paddy, vegetables, fruits, tubers, pulses and millets the Agriculture Development and Farmers’ Welfare
has been completed in 19711.89 ha and “rain shelters,” Department. Farmer pension was enhanced from Rs
established in a total area of 119,752 square metre. 500 to Rs 1400 per farmer.
Integrated Farming System was established in 14,000 Considering the importance of soil health in
unit and employment provided for 3684 Non-Resident augmenting crop production and significance of soil test
Indians (NRIs) and 7658 youth. based nutrient application, 28,40,389 lakh soil health
Coconut Development Council was constituted in cards depicting the fertility status and recommendations
2018 with a 10-year development vision for reviving were distributed to farmers in the State based on soil
coconut farming in the State through replanting testing during the period 2015-16 to 2019-20 as part
and under planting with high yielding varieties and of the Central Soil health Card programme under
local varieties, enhancing productivity and ensuring National Mission for Sustainable Agriculture.
forward linkages with agro industry. It is targeted to For providing direct market opportunity to farmers
expand coconut cultivation in an additional area of​​ for selling their produce, 30 urban markets and 440
1.44 lakh ha and replant in 3 lakh ha. As part of this weekly markets were established in gram panchayats for
effort, 11,47,151 West Coast Tall, Dwarf, and Hybrid fruits, vegetables, millets.
20 | KERALA DEVELOPMENT REPORT 2021

With the twin objectives of promoting the doubling of production of vegetables over the 14th
cultivation of vegetables and flowers in the State and Plan period. Of course, this would require a sharp rise
to support increased adoption of better practices by in productivity as additional area available for vegetable
creating value chains of vegetables and flowers fetching cultivation is limited.
higher income to the farmers, Centres of Excellence for The Task in Agriculture
vegetables and flowers were established in Wayanad in It is clear that Kerala has to focus on a rapid increase
collaboration with Government of Netherlands. in production of its major crops over the next decade.
The project establishment of banana and honey Given that new area that can be brought under
based agro park, Thrissur, has been approved by KIIFB cultivation is very limited, the focus has to be on
at the Model Horticultural Farm, Kannara (Department raising productivity. Rise in productivity requires a
of Agriculture), Thrissur. serious reliance on modern agricultural science, and
Kerala Agricultural University released 35 crop a firm rejection of traditionalist methods that keep
varieties in various crops (rice – 8 varieties, vegetables productivity-levels low with no concomitant benefits
– 9 varieties, tuber crops – 1 variety, plantation crops- to the environment.
2 varieties, spices – 12 varieties, medicinal plants – 2 One of the important weaknesses of agriculture in
variety, Forage crops – 1 variety. Kerala is the low productivity of most of its major crops.
Intellectual Property Rights Cell (IPR Cell) of Productivity levels are low both in comparison with
Kerala Agricultural University (KAU) facilitated other States as well as with the maximum attainable
obtaining Geographical Indication (GI) registration to productivity under scientific practises. The difference
local agricultural products of Kerala such as Nilambur between the actual productivity and the maximum
teak, Chengalikodan Nendran banana, Marayoor attainable productivity is termed the “yield gap.”
jaggery, and Tirur betel leaf. To promote agristartups There is a scarcity of systematically collected
and agri business ventures, agribusiness incubators are data with regard to yield gaps in Kerala. This paper
established. Farm facilitation centres are established in puts together two sets of data, both from the Kerala
all Krishi Vigyan Kendras of KAU for training in value Agricultural University (KAU) for the mid-2010s. The
addition and processing. first was made available by the Directorate of Research
Web-based land resources information system for at the KAU, and the second was made available by the
14 districts of Kerala along with watershed information Cropping System Research Centre (CSRC) of the KAU
system for entire State was developed and deployed by in Karamana (Table 2.5 and Table 2.6). In both tables,
Kerala State Land use Board. yield gaps are presented in percentages as the extent of
As stated earlier, vegetable production increased in improvement possible from the actual yield to reach the
the 13th plan period. The level of demand for vegetables best realised (or potential) yield. That is,
in Kerala was estimated at 27.1 lakh MT in 2009-10 Yield gap (%) = {[(Potential yield – average yield)/
according to a report prepared by the National Council average yield] * 100}
of Applied Economic Research (NCAER). In 2030, Both the tables bring out the need to improve
the demand for vegetables is expected to rise to 35.5 productivity of crops in Kerala. Broad averages compiled
lakh MT. In other words, Kerala could aim at one more in Table 2.5 show that while rubber recorded the lowest
Table 2.5 Average and potential yields of major crops, Kerala in mid-2010s in kg per ha, nuts per palm, kg per
year
Crop Potential yield Average yield Yield gap (%)
Rice (kg/ha) 4500 2300 95.6
Coconut (nuts/palm/year) 150 40 275.0
Arecanut (kg nuts/palm/year) 25 7 257.0
Rubber (kg/year) 2000 1400 42.9
Pepper (kg/ha) 1500 295 408.5
Coffee (kg/ha) 2000 578 246.1
Tea (kg/ha) 5000 1706 193.1
Note: Data were compiled from internal sources and hence may not match with DES data. Potential yield corresponds
to average best realised yield
Source: Directorate of Research, Kerala Agricultural University
 AGRICULTURE | 21

Table 2.6 Average, potential and best yields of major crops, by selected agro-ecological zones, Kerala, mid-2010s
in tonnes per ha, kg per ha, nuts per palm
Name of the agro- Crop and units Yield in Yield in Highest yield in a Yield
ecological zone the zone the district farmer’s field gap (%)
Paddy
Onattukara Sandy Plain 2.7 3 6.5 145.3
(tonnes/ha)
Coconut
Onattukara Sandy Plain 52 40 160 207.6
(nuts/palm/year)
Paddy
Kuttanad 4.3 2.6 7.5 76.1
(tonnes/ha)
Coconut
Kuttanad 41.2 29 300 628.9
(nuts/palm/year)
Paddy
Kole lands 4.5 2.5 9.5 112.5
(tonnes/ha)
Coconut
Pokkali lands 35 31 100 185.7
(nuts/palm/year)
Northern laterite Pepper (kg/ha) 567.6 98 2750 385
Paddy
Northern laterite 2.3 1.5 5 117.4
(tonnes/ha)
Banana
Northern laterite 20.2 7.8 60 197.1
(tonnes/ha)
Northern hills Pepper (kg/ha) 199 217 888 346
Northern hills Coffee (kg/ha) 1031 705 1500 45.5
Central plateau Pepper (kg/ha) 583 217 3500 500
Central plateau Coffee (kg/ha) 1200 750 3000 150
Northern coastal Cashew (kg/ha) 1100 1071 1800 63.6
Arecanut
Northern coastal 1.3 0.9 3.6 176.9
(kg/palm)
Paddy
Kaipad lands 2.9 1.7 6 106.9
(tonnes/ha)
Southern high hills Rubber (kg/ha) 1600 1499 2000 25
Cardamom
Southern high hills 387.5 137 650 67.7
(kg/ha)
Tapioca
Southern Central laterites 23 29 100 334.8
(tonnes/ha)
Source: Cropping System Research Centre (CSRC), Karamana, KAU
yield gap, the yield gaps for the rest of the crops were Studies have also shown that productivity-levels
in the range of 95 per cent to 409 per cent. Zone-wise of most crops in Kerala are significantly lower than in
data presented in Table 2.6 reiterate this conclusion in a other Indian States (Government of Kerala, 2016).
disaggregated form. Compared to the highest yield in a Further, although productivity-levels for many
farmer’s plot in the same zone, the yield gaps for paddy crops in Kerala declined between 2011-12 and 2019-
ranged from 76 per cent to 146 per cent. In coconut, 20 (Figure 2.5), the sharp fall in productivity of certain
the yield gaps ranged from 186 per cent to 629 per crops in 2018-19 and 2019-20 must be discounted as
cent. In pepper, the yield gaps ranged from 346 per these were years of major floods in the State. Overall,
cent to 500 per cent. there were moderate improvements in the productivity
22 | KERALA DEVELOPMENT REPORT 2021

of paddy, cardamom, and tapioca. But for the rest of the large areas under spices and plantation crops. Still,
the crops, the productivity declined in varying degrees. Kerala’s pesticide consumption per 1000 ha in 2017-
The declines in pepper, cashew nut, coffee and rubber 18 was 0.41 MT, which was the same as the national
appear particularly worrisome. average. The corresponding figures were 0.82 MT
In sum, the primary task of agricultural policy over in Punjab, 0.62 MT in Haryana and 0.66 MT in
the next decade has to be a focussed programme to raise Maharashtra.
productivity in the State. There are certain misconceptions on pesticide
The focus of agricultural policy in the 13th Plan content in food in Kerala. A common refrain is
was to concentrate on productivity, profitability and that food items in Kerala, especially vegetables, are
sustainability. Only if productivity improves can increasingly “poisonous” (visham in Malayalam) and
incomes be raised. Studies show that in the rainfed unfit for consumption. “Poison” in food has also been
regions of the State, yield gaps can be closed with the linked to the rising incidence of cancer in the State. A
existing technologies. Policy, and in particular the statement of facts may be in order.
extension machinery, has to focus on better management In India, the Food Safety and Standard Authority of
of soil and water, wider adoption of improved varieties, India (FSSAI) under the Ministry of Health and Family
availability of good quality certified seeds and balanced Welfare fixes Maximum Residue Limit (MRL) of
fertilisation and nutrient management. These studies pesticides in food keeping in view the dietary exposure
also show that higher yield gaps are broadly correlated and risk assessment. In science, there are globally
with poor adoption of technologies. For instance, accepted practices to arrive at the MRL.
the absence of or poor application of lime, chemical • At one end, there is the No Observed Adverse Effect
fertilizers, insecticides and fungicides was found to Level (NOAEL), which is defined as the highest level
be common in regions and crops with higher yield of exposure to a chemical, determined in stringent
gaps. The more recent introduction of planning for animal toxicity tests, at which there was no observed
agroecological zones by the Department is a welcome toxic or adverse effect when one is exposed to the
step which would ultimately lead to improved and chemical in the long run. Numbers for animals are
scientific formulation, design and implementation of extrapolated to arrive at estimates for humans.
departmental schemes. • At the other end, there is the Lowest Observed
It is only through the application of more and Adverse Effect Level (LOAEL), which is defined as
better science that agriculture can become sustainable. the lowest-level of exposure to a chemical at which
In Kerala, often, a common understanding propagated there is an adverse effect.
through sections of the media and unverified sources • A third concept used is the (Acceptable Daily Intake
is that zero application of fertilizers and pesticides is (ADI), which is defined as the maximum amount
the singular way to attain sustainability. Nothing can of a chemical that can be ingested daily over a
be more wrong and irrational. The consumption of lifetime with no appreciable health risk. The ADI is
fertilizers on a per ha basis was the lowest in Kerala calculated by applying a safety or uncertainty factor,
compared to other States and that it declined drastically which is commonly 100, to the NOAEL.3 That
over the last decade. In the case of pesticides, Kerala’s is, the long-term NOAEL (which is less than the
consumption of pesticides is likely to be higher given LOAEL) is further divided by 100.
RICE PEPPER AND CARDAMOM
3000
Pepper Cardamom
600
2920
547
2900

2837 490
2827 500 476 470
2800
2790 445 491 439 444
2800
2757 412
2733 400 446
PRODUCTIV ITY, IN KG PER HA

400
PRODUCTIV ITY, IN KG PER HA

403
2700 350

352
300
2600 2577 297
2547
246 246 254
200
2500

100
2400

2300 0
2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20
 AGRICULTURE | 23

GINGER AND TURMERIC BANANA AND OTHER PLANTAINS

9200
Ginger Turmeric
6000

9111
5375
9000
9038
4898 8961
5000 4742 4789
4618
4421 4343
8800
4227 8806
3976
8703
PRODUCTIV ITY, IN KG PER HA

PRODUCTIV ITY, IN KG PER HA

4000
8600

8561
8533
3177
3000 8400 8451
2922
2761 2732 2695
2675 2627 2573
2472

8200
2000

8111
8000

1000

7800

0
2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20
7600
2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20

CASHEWNUT TAPIOCA
800 45000
41793

38996 38427
700 728
40000 38363
37576
36679 36842
680 680 35331
671 34470
654 645 35000
600

574 30000
PRODUCTIV ITY, IN KG PER HA

PRODUCTIV ITY, IN KG PER HA

500

487
25000

400
403
20000

300

15000

200
10000

100
5000

0 0
2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20

COCONUT COFFEE
8000 840

7491 7432
7000 7237 7265 7322
820 815
6889 6878 6964
808
6000
799
6077 800
793
PRODUCTIV ITY, IN NUTS PER HA

PRODUCTIV ITY, IN KG PER HA

5000 782
781
780

4000
761 762
760

3000 747

740
2000

720
1000

0 700
2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20

TEA RUBBER
2500 2500

2158
2085 2084 2060
2036
2000 1917 2000

1931 1903
1665 1652
1564
PRODUCTIV ITY, IN KG PER HA

PRODUCTIV ITY, IN KG PER HA

1500 1500

1182
1000 1000

981 981 981

923 894
796

500 500

0 0
2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20

Figure 2.5 Trends in the productivity of selected crops, Kerala, 2011-12 to 2019-20 in kg per ha and million nuts
per ha
Note: Rubber productivity in 2011-12 and 2012-13 was based on tapped area, and are not comparable with other
years.
Sources: i) Department of Economics and Statistics; ii) Coffee Board; iii) Tea Board; iv) Rubber Board
24 | KERALA DEVELOPMENT REPORT 2021

• Finally, we estimate the Maximum Residue particularly for vegetables, have residues of approved
Limit (MRL), which is defined as the maximum pesticides higher than MRL.
concentration of pesticide residue likely to remain Further, even for the small proportion of food items
as a result of the use of pesticides according to good with residues above MRL, the FSSAI has recommended
agricultural practices (GAP) and product label a number of methods to reduce the residue-levels.5
recommendations. The MRL is estimated such that These include scrubbing, washing with water (about
the total of the residue-level accounts for less than 80 75 per cent of pesticide residues can be removed with
per cent of the ADI for that agricultural chemical. washing), washing with 2 per cent salt water or 1 per
In other words, the ADI is reduced further by 20 cent tamarind solution, vinegar soak, blanching and
per cent to arrive at the MRL. peeling. In addition, steaming and cooking of vegetables
There is a Central sector scheme titled “Monitoring eliminate most of the residues that are not removed by
of Pesticide Residues at National Level” under which washing or peeling.
27 accredited laboratories (labs) analyse samples of food In sum, any drastic steps are not necessary to reduce
items collected from retail outlets, APMC markets, pesticide consumption in Kerala’s agriculture. At the
mother dairy, organic outlets and farm gate for the same time, no effort should be spared to discourage and
possible presence of pesticide residues. The products prevent the use of non-approved pesticides.
covered are vegetables, fruits, spices, curry leaves, red While the practice of organic farming can be
chilli powder, rice, wheat, pulses, milk, fish and marine, popularised in niche spheres where premium export
tea, meat, egg and water. There are two laboratories in prices are available, this cannot be a generalised policy
Kerala that undertakes this analysis: one at the College for the State. It might lock the State’s agriculture into a
of Agriculture, Vellayani and the other at Marine low yield-low income cycle, leading to more unscientific
Products Export Development Authority (MPEDA), and irrational uses of land in the long-term. Balanced
Kochi. fertilizer use and improved nutrient management based
In 2017-18, the Vellayani lab tested 1318 samples, on soil-testing should be aimed at for better soil health.
of which 969 samples (73 per cent) had no detected Integrated pest management practices, which include
residues and only 80 samples (6.1 per cent) contained the judicious use of pesticides and fungicides, are what
residues above MRL. The Kochi lab tested 660 samples, should be aimed at for better plant protection.
out of which not even one sample contained residues Globally, experience shows that reduced application
above MRL. Let us consider vegetables. The Vellayani of chemicals in agriculture can be achieved only
lab tested 549 samples of vegetables, out of which 413 through better research in the breeding of crop varieties
(75.2 per cent) had no detected residues and only 16 resistant to pests and diseases. Advanced research in
samples (2.9 per cent) contained residues above MRL. plant breeding should help us to develop varieties and
Data for Kochi lab were not available. At the same hybrids that systemically require less application of
time, a certain number of samples in the Vellayani chemicals. New applications in cutting-edge areas of
lab (21.3 per cent for all food items and 18.3 per cent research, such as biotechnology, gene editing (CRISPR)
for vegetables) contained residues of pesticides not and nanotechnology, promise not just to reduce the use
approved for use on the respective crop.4 The proportion of chemicals, but also make available high yielding crop
of these samples had residues higher than MRL which varieties resistant to viral diseases, acidity, alkalinity,
could not be assessed, as no MRL has been fixed by salinity, flooding and high temperature. The State’s
FSSAI for them. Indeed, the use of non-approved agricultural research system needs to be geared up to
pesticides in agriculture has to be eliminated through meet this challenge.
better extension activities and awareness campaigns. The Pathways to Growth
At the same time, there is no evidence that any large The future of Kerala’s agriculture, as we underlined in
proportion of food items available in Kerala’s markets, the last section, has to be focussed on an increase in

3
The 100-fold safety factor is used to account for the differences in species and differences in toxicokinetics and toxicodynamics.
4
These non-approved pesticides are not illegal pesticides. They are approved by the Central Insecticide Board and Registration
Committee (CIBRC). No chemical can be manufactured, transported and sold in India without the approval of CIBRC.
Non-approved, here, implies the absence of label claims on the use of the specific pesticide on the specific crops referred to
in testing.
5
See https://fssai.gov.in/upload/uploadfiles/files/Guidance_Note_Pesticides_04_02_2020.pdf.
 AGRICULTURE | 25

productivity, profitability and sustainability. Achieving agriculture in panchayats. Agricultural programmes

this aim requires a major reconceptualisation of continued to be crop-specific, did not pay sufficient
agriculture in the policy sphere. This would not attention to land and water management, did not bring
require additional funding from the Government. At about innovations in agricultural practises and did not
the same time, we do foresee the need for a significant create new agrarian institutions. The other issues noted
convergence of activities of the different players in the by the study included the lack of convergence and
following fields: coordination across departments at the local-level, poor
a) encouragement of cutting-edge research to develop quality of extension services through krishi bhavans,
high quality certified seeds dual control of agricultural departments, insufficient
b) improvement of soil health integration of the needs of farmers and discussions
c) integrated water resources management to expand in grama sabhas and the poor performance of block
irrigation panchayats in agriculture (as in helping develop a
d) effective public agricultural extension to popularise regional agricultural development policy). Many of
balanced fertilisation and IPM practices these problems can be argued to be relevant in 2020
e) adoption of mechanisation in agricultural also.
operations A further problem is highlighted by data in Table
f ) modernisation of supply chains and marketing 2.3. The share of production sector expenditure in total
systems expenditure has consistently remained below 30 per
g) large-scale investments in processing and value- cent. In fact, in most years after 2012, the share was
addition. below 20 per cent, and even just 10 per cent in one year.
In our attempts to ensure convergence in these The share of agricultural sector in total expenditure was
aims, Kerala should utilise two features of institutional between 5 and 10 per cent. This is a major drawback
strength in its history: decentralised governance and the of the decentralisation experience in Kerala. Even if 10
cooperative movement. per cent more of the expenditure by local bodies enters
Role of Panchayats agriculture, the total spending in agriculture could be
Kerala initiated the People’s Planning Campaign raised by about Rs 200 crore a year.
in 1996 after the passage of the 73rd and 74th In sum, though decentralisation was introduced to
amendments to the Constitution in 1994. A number of empower local communities and local institutions to
local activities and responsibilities related to agriculture plan the use of land-based assets, it by and large failed
were transferred to the local bodies. It was also specified to achieve these objectives. This is not to devalue the
that 40 per cent of the Plan expenditure of panchayat role of panchayats in agricultural development, but a
should be in the productive sector, within which call to reform their activities and improve the content
agriculture constituted an important part (this was later of their interventions in the sector. Decentralisation
revised to 30 per cent). is too valuable a tool of public policy in Kerala to be
There were high expectations about the impact squandered away.
of decentralised planning on agricultural growth in The 14th Plan period should be an appropriate
the State. However, the introduction of decentralised occasion to reinvent the role of panchayats in agriculture.
planning coincided with a collapse of agricultural prices The panchayats should play a leading role in planning
causing an unprecedented agrarian crisis in Kerala. for agriculture at the local-level, even as the block and
Therefore, there can be no realistic assessment of the district panchayats are given larger responsibilities to
independent impact of decentralisation in agriculture at ensure that regional policies in agriculture are aligned
least over its first decade. The stagnation of agricultural to the needs of specific agro-ecological zones.
growth, as we have seen in the last section, continued Role of Cooperatives and Other Collectives
even after the acuteness of the agrarian crisis was A key challenge in Kerala’s agricultural development has
contained after 2007. been to create institutions at the local-level that allow
A detailed official study in 2009 revealed that the for the benefits of economies of scale in production and
target of 40 per cent of funds for productive sectors post-production activities. The small size of farms in
was not achieved in most local bodies for most Kerala means that farmers suffer from weak bargaining
years (Government of Kerala, 2009). This adversely power in the input and output markets. Their produce
affected investment in agriculture. This study also is not aggregated at the local-level; this not only leads
noted a number of other problems with planning for to poor price realisation vis-à-vis traders but also to
26 | KERALA DEVELOPMENT REPORT 2021

the absence of value-addition avenues, which in turn the State has tried to popularise karshika karma senas.
further dampens farm gate prices. The record of karshika karma senas is mixed. A careful
The group farming programme introduced in the late evaluation of these senas is needed that would provide
1980s was an important attempt to introduce collective us insights into how they can be popularised. The
undertaking of selected agricultural operations, processes must be designed such that karshika karma
including the purchase of inputs and marketing of senas would work in better alignment and cooperation
products. It proved to be effective in reducing costs with agricultural offices at the local-level. Their activities
in paddy cultivation. Later, the group approach was must be integrated with Custom Hiring Centres (CHC)
taken forward and consciously linked to more scientific for renting agricultural implements.
cultural practices and adoption of technology in A Plan for Integrated Action
experiments like Group Approach for Locally Adapted 1) The State Government has already initiated a
and Sustainable Agriculture (GALASA). There were programme for cultivating all fallow lands in the
also interesting attempts to extend the concept of State. In the next stage, this policy needs to be more
group farming into non-paddy crops like coconut and scientifically designed. Land is a scare and valuable
vegetables. However, none of these experiments could commodity in Kerala and it has competing uses
be taken forward and institutionalised. in agricultural and non-agricultural sectors. This
Given Kerala’s rich history with the cooperative underlines the need for a land use plan in every
movement, creating multiple forms of farmer producer panchayat. Such a land use plan should aim at the
organisations (FPO) is the most appropriate way most efficient and sustainable use of every plot of land
of going ahead. An FPO is a legal entity formed by in the panchayat. The areas suitable and reserved for
primary producers in agriculture. An FPO can be agricultural use, industrial purposes, public services,
registered under any of the following legal provisions: tourism and the no-construction zones should be
(a) Cooperative Societies Act or Autonomous or delineated. While reserving areas for agricultural
Mutually Aided Cooperative Societies Act; (b) Multi- uses, care should be taken to consider soil health
State Cooperative Society Act, 2002; (c) under Section and potential for reclamation as important criteria.
581(C) of Indian Companies Act, 1956, as amended in 2) Alongside land use plans, Kerala also needs river
2013; (d) a Section 25 Company of Indian Companies basin plans for all its 44 rivers. The Dutch expert
Act, 1956, as amended in 2013; (e) as Societies team that studied Kerala’s water situation after
registered under Society Registration Act, 1860; and the floods of 2018 had recommended that Kerala
(f ) Public Trusts registered under Indian Trusts Act, should transform its water policy in line with the
1882. As is evident, in addition to the older form of concept of Integrated Water Resources Management
cooperative societies, the Farmer Producer Company (IWRM), as part of which Integrated River Basin
(FPC) is a new collective institution promoted from the Management (IRBM) should be considered
early-2000s. Kerala has a number of FPCs in coconut (Government of Kerala, 2018). IWRM emphasises
cultivation – in Kannur, Palakkad, Malappuram, a cross-disciplinary coordination of water, land
Kozhikode, Alappuzha, Thrissur, and Kollam – that and related resources in a river basin, watershed or
have been performing commendably over the last catchment to achieve long-term sustainability. The
decade. These experiences have to be documented and aim is to focus on achieving healthy river ecosystems
demonstrated as success stories in other parts of the with wide-ranging benefits for all communities,
State. economies and biological processes within it. The
There has also been a mushrooming of self-help key components of the IWRM policy are identified
groups (SHGs) and joint liability groups (JLG) that as follows:
collectively undertake paddy and vegetable cultivation a) Cross-sectoral coordination in policy
on lands leased in on lease. This new form of leasing development, planning, and implementation of
should also be encouraged and the necessary legal water related infrastructure.
changes should be introduced. b) Soil conservation and erosion protection in
Similarly, to address the shortage of labourers, there upper catchments.
were early experiments in the State with co-operative c) River channel management in view of
institutions for labour supply and management, such uncoordinated construction of permanent and
as the Labour Bank and the Labour Army. These too temporary check dams and bunds for irrigation
have not succeeded for various reasons. More recently, and domestic water supply.
 AGRICULTURE | 27

d) Continuous repair of canal embankments 4) To assist in the larger programme for agricultural
(bunds), silted-up and polluted drainage canals, development, Kerala needs to upgrade its
weirs, barrages, and spillways. agricultural research infrastructure. Scientists at the
e) Formulation of, and adherence to, optimal KAU have played an important role in the growth
protocols for dam operations with balanced of the agricultural sector in the past. This role needs
consideration for downstream water demand, to be elevated to the next-level over the next decade.
environmental flow, flood protection, and power First, the KAU should make use of developments
generation. in the frontier sectors of biotechnology and
f) Better management of coastal river outlets. nanotechnology to develop new seeds that are both
g) Improved polder management in regions like higher yielding and with improved resistance to pests
Kuttanad. and diseases. In biotechnology, we should be able to
It should be as sub-sets of these river basin plans use the emerging technologies in gene-editing and
that panchayats should attempt development of genetic engineering. In nanotechnology, we should
integrated watershed management interventions. be able to utilise new innovations in nano-agri
Each panchayat needs to develop an appropriate inputs, biosensors and nano-food systems, even as
watershed plan aligned to the larger river basin plan we ensure biosafety of nano-materials. These would
applicable to that panchayat. Such plans have to be allow Kerala’s agriculture to meet the challenges in
prepared for every micro-watershed. In 2000, every climate variability and natural disasters, as we may
micro-watershed in Kerala was mapped, and brief need more short-duration seeds resistant to salinity
reports on each of them presented before the grama and flooding. The KAU should also develop better
sabhas, which elected the watershed committees. protocols for precision farming and polyhouse
These watershed committees have become defunct farming, which are expected to be more popular in
since then. They have to be revived and strengthened the near future.
with necessary expertise and information support 5) Similar is the case with agricultural extension. Kerala
to prepare micro-watershed plans. The watershed has a dense network of institutions for agricultural
plans so drawn up should be approved by the research under the Central and State Governments.
District Planning Committee and also the Kerala However, our framework of extension has a number
State Planning Board, as in most cases river basins of weaknesses. Many developments in research
cut across district boundaries. The annual choice remain in the “lab” and have not reached the “land.”
of projects in the local bodies should be justifiable An example is the case of integrated multi-crop
based on these river basin plans and watershed plans. models of homestead cultivation. The krishi bhavans
3) Once the watershed plans are developed, each have been reduced to subsidy disbursing institutions,
panchayat needs to prepare a crop plan based on and most of the working time of agricultural officers
detailed soil tests in each region. The Government is spent on administrative activities. Kerala should
already has a scheme to distribute soil health cards modernise its krishi bhavan system utilising the
to each farmer. However, the progress under the possibilities of e-governance, allowing officers to
scheme is tardy. The distribution of soil health spend more time in the farms. The activities of
cards to all farmers of the State must be completed krishi bhavans should be focussed on productivity-
within a specified timeframe. More soil testing enhancing interventions. A study group to reform
centres should be established for this purpose. Every krishi bhavans may be a useful first step.
agricultural research centre in Kerala should have a 6) Kerala needs to formulate a plan to improve the
soil-testing lab attached to it. Based on the results storage and utilisation of water in its 41 west-flowing
of these soil tests, and the prevailing agroecological rivers. This is extremely important to increase the
conditions, suitable crops in each region have irrigated area and cropping intensity. A part of the
to be specified along with a plan for balanced river waters could be stored in a combination of
fertilisation and sustainable plant protection. The small and large reservoirs. Such a policy should be
KAU is already entrusted with the responsibility of aligned with the respective river basin plans and the
developing package of practices for each of the 23 needs of minor irrigation schemes. Kerala also needs
agroecological zones of the State. These documents to undertake a programme to dredge and remove
can serve as a base document for the development of sand and other materials from the reservoir beds so
crop plans. as to expand their capacities of storage.
28 | KERALA DEVELOPMENT REPORT 2021

Given the necessary focus on precision farming Acts of the centre can be argued to have no direct
techniques, Kerala also needs to expand the adoption impact on Kerala. In fact, no statutory regulations
of drip irrigation or fertigation, particularly in or restrictions exist as to the opening of private
the cultivation of fruits, vegetables and coconut. markets. Kerala, as a result, has been classified by
The Department of Water Resources has already the Central Government as “not requiring reforms.”
initiated a pilot scheme in precision farming, which Nevertheless, no major private agricultural market
should be encouraged and expanded. has been established yet in Kerala.6
7) Agricultural marketing is an important sphere, The absence of an APMC Act does not imply
where the State needs urgent emphasis. Procurement that there are no agricultural markets with rules
is available only for paddy. In other crops, such or regulations. There are a large number of such
as coconut or fruits or vegetables, the absence of markets – wholesale and retail – governed by
adequate marketing facilities deprives the farmer of market rules notified by the State Government
a remunerative price. Here, a structural feature of from time to time. The Department of Agriculture
the State’s agricultural sector is the key constraint. owns and operates six wholesale markets. Local self-
As Kerala’s farmers are predominantly small and government institutions (LSGI) operate hundreds
marginal, there is (a) a fragmentation of marketed of agricultural markets. The Vegetable and Fruit
surplus, leading to absence of economies of scale Promotion Council Kerala (VFPCK) operates 288
in sale; and (b) high-levels of heterogeneity in the markets. None of these markets are covered by any
cropping pattern in these farms, leading to unviable State-level legislation.
quantities of marketed surplus in a number of The existing network of markets is inadequate for
crops. Due to these features of production, and more than one reason. One, agricultural markets do
the absence of efficient supply chains, the potential not exist in many regions where farmers are forced
for aggregation of produce at the farmer-level to rely on unregulated village traders. Two, given
remains acutely underexploited. This drawback has that agricultural production can be expected to rise
implications for not just the farmer’s price but also in the future, more markets at the local-level would
the growth of enterprises in value-addition, where become necessary. Given Kerala’s historical strength
the availability of lump sum quantities of raw in collective action, it would be appropriate if these
materials is an important cost factor. new markets are established in the cooperative
Let us first consider the question of agricultural sector. Local government institutions should
markets. play a major role in investment and regulation of
Kerala has never passed an Agricultural Produce these markets. Kerala should also involve National
and Marketing Committee (APMC) Act. The Bank for Agriculture and Rural Development
extent of marketed surplus of crops like paddy or (NABARD), the commercial banks, the Kerala
fruits or vegetables was never significant enough Bank and Primary Cooperative Agriculture and
to require large and regulated wholesale markets Rural Development Banks (PCARDB) to extend
like the APMC mandis. As such, the recent Farm more credit to the creation and expansion of

6
There is no exact data on the number of private agricultural markets in Kerala. From 2004, there was a scheme of the central
Government called Scheme for Development and Strengthening of Agricultural Marketing Infrastructure, Grading and
Standardisation (AMIGS). Under AMIGS’ sub-head “Establishment of private markets/purchase centres/collection centres/
market yards”, Rs 28 crore was invested in Kerala between 2005-06 and 2010-11. The nature of investments made included
development of market yards, creation of agricultural marketing infrastructure, construction of modern trade centres and
agri-business centres, fish processing units, milk marketing societies, collection and grading centres for rubber and grading
and packing units in areca nut. Many of these were initiatives in the cooperative sector, such as the sahakarana (cooperative)
agricultural markets.
In 2013, AMIGS was merged with the Grameen Bhandaran Yojana (Rural Godown Scheme) as a new sub-scheme
called Agricultural Marketing Infrastructure (AMI), and made part of the Integrated Scheme for Agricultural Marketing
(ISAM). As on September 30, 2020, there were 435 projects sanctioned under AMI in Kerala, with a total financial outlay
of Rs 281.09 crore and subsidy assistance of Rs 64.26 crore. The total bank loan/own contribution was Rs 279.86 crore.
Of these, 331 projects are completed and 78 projects are in the pipeline. These projects were in the spheres of market yards,
agricultural processing, fishing boats, rubber processing, vehicles for transport of fish and fish products, copra processing,
and rubber processing.
 AGRICULTURE | 29

agricultural marketing infrastructure. Funds under sector in Kerala has improved over the past five years,
NABARD’s Rural Infrastructure Development it has not been commensurate with the potential.
Fund (RIDF) can be made use of more effectively. The status of construction of new warehouses under
Finally, given Kerala’s agrarian specificities, the the KSWC financed by NABARD’s Warehouse
State should begin discussions on an overall State- Infrastructure Fund (WIF) is given in Appendix
level regulatory regime for agricultural markets, Table 2.1. Construction of these structures should be
covering public, private and cooperative markets. completed with priority.
The existing marketing network is too fragmented, At present, the lack of adequate land has been
and an overarching State-level legislation will help identified as a major constraint in the development of
to streamline their activities. storage and warehousing capacities. Among farmers
This brings us to the second issue, that is, the too, the availability of farm-level storage infrastructure
aggregation of output. Creation of facilities for is poor, particularly for crops like rubber, coconut, areca
aggregation should be organised parallel to the nut, and spices. The concept of negotiable warehouse
creation of new markets. Here, Kerala should receipts has also not caught up in the State for multiple
facilitate the establishment of a large number of reasons.
FPOs, in the form of both cooperatives and FPCs There must be proper attention given to the
at the panchayat-level. Alongside, a plan to develop following areas in the field of agricultural storage and
a modern supply chain for fruits and vegetables warehousing.
should be developed. • The State Government should increase its
8) Storage and warehousing in an important area investments in the storage and warehousing sector
that needs focussed attention. Kerala’s agricultural to expand capacities. Plan funds and the funds of
production will rise in the next five years. Paddy, KIIFB can be used for this purpose. The utilisation
vegetables and fruits will be the focus areas. of Central sector schemes to improve investments
Development of storage and market yards in the sector have to be given priority.
(including cold storages and cold chains), scientific • Kerala should examine if a more liberal land
post-harvest management and handling systems acquisition policy for the creation of storage
and scientific transportation will have to receive infrastructure can be introduced, including the use
urgent policy attention. The plan to develop a of common pool land available with panchayats.
modern supply chain in agriculture should include The current system of licensing should also be
a bottom-up development of mobile cold storages liberalised.
at the panchayat-level, larger storage structures • The land and godowns available with the primary
at the block-level and even larger warehouses at agricultural cooperative societies should also be
the district-level. These structures should also be used to increase storage capacities in the State. In
efficiently aligned and linked with the agro-parks fact, investment by cooperatives can meet a good
and food parks being developed at various locations. part of the required investments.
At present, the Kerala State Warehousing • The existing warehouses need modernisation and
Corporation (KSWC) has 56 warehouses with a total renovation to reduce spoilage and increase efficiency.
capacity of 2.76 lakh MT (of which 0.72 lakh MT is • Kerala Bank should be entrusted with the task
hired capacity). Other agencies with presence in Kerala of increasing credit flow into the storage and
are the Central Warehousing Corporation (1.3 lakh warehousing sector.
MT) and the Food Corporation of India (5.36 lakh 9) Promotion of value addition and processing should
MT). However, these facilities largely operate in the be a part of efforts to expand marketing and storage.
field of paddy and not in other crops. With the National One of Kerala’s historic failures in the agricultural
Food Security Act (NFSA) coming into operation, it sector has been its inability to develop medium
is estimated that an additional 7 lakh MT of storage and large industries and enterprises that purchase
capacity is required in Kerala. farmer’s products in some scale and transform them
Under the Grameen Bhandaran Yojana, storage commercially into value added products. Such
facilities with a total capacity of about 55,806 MT possibilities exist in crops like coconut, vegetables,
were created. Further, 211 more schemes have been fruits, spices and condiments and medicinal plants.
sanctioned for creating 90,842 MT. According to Unless value addition is ensured, prices received by
NABARD, while the credit flow to the warehousing farmers cannot be improved.
30 | KERALA DEVELOPMENT REPORT 2021

The Future of the Plantation Sector and thus separated from the Ministry of Agriculture.
In this section, we discuss the future of Kerala’s The Coffee Board was formed in 1942, the Rubber
plantation sector. The discussion is structured Board was formed in 1947, the Tea Board was formed in
separately from other crops, as the plantation sector 1954 and the Spices Board was formed in 1987. These
cannot be called a purely agricultural sector and shares Boards were entrusted with the tasks of promotion of
many characteristics of production organisation with area and production, and received special funds from
the industrial sector. Also, these commodities are the Central Government. Funds were also set aside for
managed under the different commodity boards of the export promotion schemes, and protection was offered
Ministry of Commerce, Government of India. They from cheaper imports. In short, the plantation sector
are considerably export-oriented and their prices are in Kerala grew between the 1940s and the 1980s in the
largely determined outside the borders of the State and shadow of a protectionist economic policy framework.
the country. Some discussion on spices is also included The situation changed by the 1990s. The World
here, even though they are not plantation crops. Trade Organisation (WTO) agreement came into
The culture of plantations is an integral part of operation from 1995. The WTO agreement led to the
the culture and geography of Kerala. The ecologically removal of quotas and tariffs that were the hallmark
unique, though fragile, highlands of Kerala form a of India’s protectionist trade policy. This was the first
distinct component of the State’s agrarian history and stage of the contemporary crisis in Kerala’s plantation
the contemporary canvas. Kerala contributes about 45 economy. Prices of plantation crops began to crash and
per cent to the total plantation production in India, and many districts of Kerala experienced an acute agrarian
accounts for about 37 per cent of the total area cultivated crisis between 1997 and 2004.
with plantations in India. In rubber, Kerala accounts In 2010, India signed the Association of Southeast
for about 77 per cent of the national production. In Asian Nations (ASEAN) agreement, which inaugurated
cardamom, the State accounts for about 89 per cent of a new stage in the crisis. Many ASEAN countries shared
the national production. In coffee and tea, these shares India’s tropical climate and were competitors in the
are 22 per cent and 5 per cent respectively. Taking these production of spices and plantation crops. The State
four crops together, cultivation takes place in 7.1 lakh Government did not have any freedom to influence
ha of land, constituting 27 per cent of Kerala’s cropped the national trade policy; these agreements were also
area. Further, it is estimated that about 20 per cent of signed by the executive without consulting either the
Kerala’s population depends on plantations for their States or the legislature. Later, the ASEAN agreement
livelihood. In absolute terms, more than 3 lakh workers was sought to be carried forward with the zero-duty
depend on plantations for their employment. Regional Comprehensive Economic Partnership
Like in other parts of India, Kerala’s plantations have (RCEP) agreement, but progressive political
a history that can be traced back to the colonial period. movements in India were able to contain that move,
If Kerala was India’s foremost globalised State in the albeit temporarily. These talks may restart anytime, and
twentieth century, it was largely due to the dominant the danger continues to looms large.
presence of spices and plantations in its cropping Free trade agreements were only a part of the reason
pattern and the export revenues they brought in. for the contemporary crisis in Kerala plantations.
After independence, plantations were exempted from Inability to innovate and integrate, continuing poor
the land reform legislation in Kerala owing to their productivity and climate variabilities have all made a
industrial structure of production and the presence bad situation worse. The productivity gap is particularly
of a large number of daily wage workers. This policy striking: in tea, Kerala’s productivity is 1619 kg per
allowed plantations to retain their economies of scale. ha, while national productivity is 2183 kg per ha. In
Long leases of land were allowed to remain valid even robusta coffee, it is 842 kg per ha in Kerala and 1047 kg
after independence, which allowed for a stable tenurial per ha in India. In rubber, Kerala’s productivity is 1400
framework. kg per ha whereas it is 1500 kg per ha in India. Also,
In 1950, the Plantation Labour Act formalised productivity-levels in Kerala appear to have fallen over
labour relations in plantations and reaffirmed its status the recent years.
as an industrial enterprise. The Act provided a number One important reason for the crisis of production
of social security covers for plantation workers. of plantation crops in Kerala is the drastic reduction of
Beginning from the 1940s, plantation crops were Central Government finding for the four commodity
brought under the special control of commodity boards, boards for tea, coffee, rubber and spices. In Table 2.7,
 AGRICULTURE | 31

we provide data on the real expenditures (revenue and (c) plantations should be allowed to begin ecotourism
capital) under the four boards. The figures are striking. activities; and (d) Kerala should have a policy of “once
Between 2011-12 and 2018-19, the expenditures fell a plantation, always a plantation”.
drastically by 54.8 per cent in the Tea Board, 33.9 per It was in the context of these demands that the
cent in the Coffee Board, 34.3 per cent in the Rubber Justice Krishnan Nair Commission was appointed in
Board and 40 per cent in the Spices Board. 2015, which submitted its report to the Government
Such a decline in expenditure seriously affected the in August 2016. This report recommended 14 specific
operations of the boards in production and marketing, policy changes in the plantation sector. The present State
and had a direct and visible impact on the growth Government appointed a committee of secretaries to
performance of the plantation sector. The contribution implement the major recommendations of this report.
of the plantation sector to Kerala’s GSDP fell from Rs In June 2018, a major set of decisions were taken by the
21,000 crore in 2011-12 to Rs 9950 crore in 2018-19. Council of Ministers, Government of Kerala.
More than 13 plantations in the State are closed. About 1) The State decided to completely abolish plantation
6000 persons lost jobs directly and indirectly. No new taxes.
investments are forthcoming in the plantation sector. 2) The collection of agricultural income tax from
No plantation invests in replanting, as Government plantations was to be frozen.
subsidies have been slashed with the fall in outlays. 3) Charges of seigniorage in the cutting of rubber
Some estimates show that even the area used for trees were abolished.
cultivation within the plantations has declined over the 4) All layams (labour lines) in the plantations were to
last decade. be exempted from the building taxes charged by
The State Government should initiate a set of the local bodies.
discussions with the Ministry of Commerce to ensure 5) The reconstruction of layams would be included as
that the Budgets outlays for commodity boards are part of the LIFE Mission of the Kerala Government
urgently raised. This needs to be a demand of a mass and 50 per cent of the reconstruction costs would
movement in Kerala, joined by the Government, all be met by the State Government. The estate owners
political parties, growers and workers. may pay the rest 50 per cent over seven annual
Discussions with managements of plantations in instalments. In a survey, it was found that 32,454
Kerala usually bring out a set of demands: (a) labour and plantation workers are homeless. In addition, about
labour welfare costs in Kerala are higher than in other 5348 retired plantation workers were homeless. They
States, accounting for about 65 per cent of the cost of will be included under the ambit of LIFE mission.
production; (b) plantations should be allowed inter- 6) The procedure of renewing leases of plantations
cropping and diversification into new high-value crops; would be eased.
Table 2.7 Expenditures for the four commodity boards under the Ministry of Commerce, India, revenue plus
capital, deflated by GVSA deflator with base year 2011-12=100, 2011-12 to 2019-20 in Rs crore
Real expenditure (in Rs crore)
Year
Tea Board Coffee Board Rubber Board Spices Board
2011-12 265.0 202.4 195.8 109.4
2012-13 183.6 141.0 171.8 101.2
2013-14 150.3 132.8 170.2 90.9
2014-15 149.1 135.5 176.0 92.9
2015-16 149.8 118.7 168.3 87.9
2016-17 122.0 114.1 120.7 65.2
2017-18 147.1 138.0 144.0 75.5
2018-19 119.7 133.7 128.6 65.7
2019-20 143.3 179.8 175.5 81.9
% fall, 2011-12 to 2018-19 -54.8 -33.9 -34.3 -40.0
% fall, 2011-12 to 2019-20 -45.9 -11.2 -10.4 -25.1
Source: Expenditure budgets, Ministry of Finance, Government of India, various years
32 | KERALA DEVELOPMENT REPORT 2021

7) Plantation lands will be exempted from the Kerala 10) Production of renewable energy – solar, wind and
Forest (Vesting and Management of Ecologically biogas – will be promoted in the plantation sectors.
Fragile Land) Act (EFL). 11) Possibilities of tourism in the plantations may
8) A plantation policy would be formulated for the be visited, but it will be implemented with the
State. condition that the basic structure of plantations
These eight decisions were long-standing demands will remain unchanged.
of the plantation owners in Kerala. In February 2020, 12) A Plantation Directorate will be formed by the
the Government also released a draft of a plantation Government, which will allow the convergence
policy. Here too, many demands of the plantation of activities of the departments of revenue, forest,
sector found a place. Below, we summarise the major labour, industry, local bodies, finance, power and
points in the draft plantation policy. agriculture. This Directorate will be a one-stop
1) Plantations would be retained and protected contact point for all activities related to plantations
as plantations. The policy of renewing leases of and the State Government.
plantations would be further eased and hastened. 13) All incentives and exemptions available to new
This would ensure that the existing barriers to industrial units will also be available for plantation-
services like bank credit would be removed. related initiatives.
2) The measurement and demarcation of EFL would With regard to the major recommendations
be hastened, so that more land can be brought contained in the Krishnan Nair Committee and the
under cultivation at the earliest. draft plantation policy, the Government and plantation
3) The Government would favourably visit the theme managements will continue discussions and reach a
of maximising income from one unit of plantation resolution on the outstanding issues.
land. This would be attempted without disturbing There are two points of concern on plantation
the basic features of production in a plantation. sector. These represent expectations from the sector.
The Government will explore the possibilities 1) Kerala needs to raise investments in plantations
for allowing more inter-cropping, particularly to expand replanting and improve productivity.
vegetables, in the plantations. The Government This is an urgent need for the long-term survival
will also explore if the Land Utilisation Order of of Kerala’ plantations. Kerala also needs more
1967 needs amendment in this regard. investments in the value-addition sector of
4) A major initiative for improving the processing plantations. The plantation managements should
and value-addition of plantation crops will be publish an investment plan in these two spheres.
introduced. The cluster schemes of the Industries In fact, we would argue that a part of the State
department will be extended to plantation crops Government’s promised support to plantations
also. may be made conditional on the achievement of
5) Plantations currently closed will be reopened with specific outcomes in replanting and value addition.
the help cooperatives or other means. This will help 2) Kerala is a labour-friendly State. As such, demands
protect the employment of plantation workers. to weaken welfare measures where the plantation
6) Schemes of local bodies will include schemes for industry may have social obligations will not be
plantation workers and plantations also. received favourably by the Government. Kerala’s
7) A special scheme for improving the skills of higher wage rates are a given, and we need forward-
plantation workers will be introduced. looking policies where employers and workers join
8) The Plantation Relief Fund and its activities will be hands for the overall progress of the sector.
streamlined and improved. Fisheries in Kerala: Prospects for Growth of
9) Given the impacts of climate variations, plantation Production and Income
regions will also require better watershed-based Introduction
planning, construction of small water storage The total population of fish workers in Kerala is 10.44
structures, renovation of wells and ponds and lakh, including 2.4 lakh inland fish workers. The fishing
drinking water schemes. Using funds from the fleet of Kerala comprises 5997 mechanised vessels,
Disaster Management Authority, such works will 30,920 motorised vessels, and 2674 non-motorised
be undertaken in consultation with the plantation traditional vessels. The fishing industry makes a valuable
managements and local bodies. contribution to our exports. In 2019-20, the export of
 FISHERIES | 33

marine products from Kerala was 148,227 tonne and As a result of all these measures, marine fish
valued at Rs 5020.3 crore. production in the State increased from 4.84 lakh metric
Kerala’s fisheries sector is marked by the tonne (MT) in 2015 to 6.09 lakh MT in 2019.
predominance of marine production over inland Sustainability
production; the reverse is true for India as a whole. A major menace in the sea is plastic pollution. Under
There is some consensus that while there is potential an ambitious project titled “Suchitwa Sagaram”
for deep sea fishing, Kerala needs to move towards (Clean Sea), a sanitation campaign was launched to
sustainable fish management measures, responsible reduce plastic waste build up in the sea by prohibiting
fishing, and stock enhancement. plastic waste dumping and removing all forms of plastic
Achievements in the 13th Plan period from the sea. Suchitwa Sagaram was implemented in
In the 13th Plan period, the Government’s effort in Neendakara in Kollam in collaboration with the
the marine fisheries sector was to improve livelihood Society for Assistance to Fisherwomen (SAF), Local
security among the fish worker population; provide Self Government Institutions (LSGIs) and the Suchitwa
better amenities – sanitation, health care, drinking water, Mission. This project was noted by the United Nations.
electricity, and library facilities – in the coastal regions; and About 38.4 tonnes of discarded nets, plastic ropes, and
reduce mortality at sea. There were major achievements other plastic items have so far been removed by fish
in this regard. We shall begin with a brief description of workers from the sea.
these gains before moving to issues and strategies. Livelihood and social security
Infrastructure In order to reduce mortality at sea, the Government
A signal achievement was the completion of the commissioned marine ambulances for three zones:
construction of long-pending infrastructure projects, Vizhinjam in Thiruvananthapuram, Vypin in
such as fishing harbours. Under marine infrastructure Ernakulam, and Beypore in Kozhikode. The marine
development schemes, at a total cost of Rs 403.5 crore, ambulances were equipped with all modern facilities
eight fishing harbours at Muthalapozhi, Chellanam, required for emergency medical aid for 10 persons at a
Chetuva, Tanur, Thalai, Vellayil, Koyilandy, and time. Further, 19 coastal hospitals were constructed in
Manjeswaram were completed and commissioned. the health sector.
Outside the Plan, utilising KIIFB funds, the construction To promote alternative livelihood activities, more
of Parappanangadi and Chethi harbours were completed than 2500 micro-enterprises were established along the
at a cost of Rs 209.04 crore. The Plan has also coast; these provide livelihoods for 7000 fisherwomen.
supported the development of Thankassery, Puthiyappa, An Apparel Park Consortium was established at
Beypore and Arthunkal fishing harbours. Harbour Kundara, Kollam, where 12 microenterprise units
Management Societies for the operation of fishing covering 48 fisherwomen beneficiaries were established.
harbours were constituted. For the first time in India, Employment was created for 230 fisherwomen in 9
Fisheries Management Councils were formed with the coastal districts by establishing 46 “Coastal Friendship”
participation of managements, fisheries representatives, seafood restaurants.
people’s representatives, and fisheries experts. Housing was a major initiative. The Department
In addition, a total of 1600 coastal roads were provided safe houses to 5457 homeless fish worker
constructed between 2017 and 2021, spending Rs families. The rehabilitation of another 4500 houses
704.1 crore. More than 65 fish markets were constructed for fish workers is in progress. Through the LIFE
at a cost of Rs 193.5 crore. For coastal protection, an Mission, 1619 homeless fisher families received new
offshore breakwater project was initiated in Poonthura houses. A building complex with 192 flats has been
with KIIFB funding of Rs 19.7 crore. About 200 fibre- constructed at a cost of Rs 18 crore at Muttathara,
reinforced plastic (FRP) vessels were provided to fish Thiruvananthapuram, to rehabilitate fishermen who
workers as part of the Blue Revolution scheme. On a lost their land and houses. Each flat has a floor area of
pilot basis, 10 deep sea fishing boats were distributed 542 sq. feet.
to fish workers. The Sagara mobile app was introduced Growth Trends
to record the departure and return of fishing vessels at The value of output (VOO) from fisheries in Kerala as a
sea. The Kerala Marine Fisheries Control Act and Rules whole rose by 13 per cent between 2011-12 and 2017-
(KMFR Acts and Rules) of 1980 were comprehensively 18 (Figure 2.6). The contribution of the inland sector
revised in 2017. is less than 20 per cent of the total VOO from fisheries
34 | KERALA DEVELOPMENT REPORT 2021

and aquaculture. In 2018-19, fish production in Kerala of India, traditional fish farming areas are slowly being
was estimated at 1.92 lakh tonnes from the inland transformed into intensive fish or shell-fish farms.
sector and 6.1 lakh tonnes from the marine sector. The Kerala should use this potential to expand inland
growth in the VOO from the marine fisheries sector aquaculture in the next ten years.
was moderate (a rise of 6.3 per cent), while there was Kerala’s Inland Fisheries Sector
substantial growth in the VOO from inland fisheries Kerala has a total coastal length of 590 km. The State is
sector (a rise of 58 per cent). endowed with a vast area of inland waterbodies: 5295.93
Kerala is deemed to have already attained an ha of freshwater ponds and tanks, 1620 ha of freshwater
optimum-level of production in marine fish resources. lakes, 65213 ha of brackish water areas and 46128 ha
It is the growth in inland fisheries that bodes well of backwater stretches suitable for aquaculture. Kerala
for the future of Kerala’s fisheries sector. This chapter is also endowed with 41 west flowing and 3 east flowing
largely focusses on Kerala’s potential in developing the rivers with a total length of 3092 km with significantly
inland fisheries sector. long stretches suitable for pen and cage culture.
As in the case of food grains and vegetables, Kerala is A major constraint, however, is fish seed availability.
deficient in fish production. It is estimated that the total Kerala has 32 hatcheries for the seed production of
domestic fish consumption in the State is approximately freshwater and brackish water fish and shrimps. Fish
9.12 lakh tonnes per annum, or about 2000-2500 seed production, which was estimated at 353.55 lakh in
tonnes per day. Of the annual consumption, about 3 to 2019-20, met only 25 per cent of the seed requirement
4 lakh tonnes (or about 60 per cent) is imported from of the State. The highest production came from the
other States or countries, especially for consumption hatcheries at Malampuzha and Peechi dams. About 648
in urban areas. A large share of Kerala fish production lakh shrimp seeds – Penaeus monodon, P. indicus and
is marine. The total marine capture fish production in Macrobrachium rosenbergii (scampi) -- were produced
2018-19 was more than 600,000 tonnes while inland in 2019-20. These numbers indicate Kerala’s potential
aquaculture contributed only about 25,000 tonnes. resources and throw light on future possibilities.
According to a study conducted by the Central Shrimp farming has a history of many centuries in
Marine Fisheries Research Institute (CMFRI), the the State. In the early twentieth century, dry shrimp
demand-supply gap for fish will widen in Kerala. At (chemmeen parippu, or peeled, deveined cooked and
the same time, Kerala, with its vast aquatic resources in dried shrimp) was exported from Kerala to Europe.
brackish water, sea water, and freshwater, has immense In the post-Independence period, mechanisation and
potential for developing inland aquaculture. It is time motorisation intensified. The landings of “karikkadi”
that the State concentrates on this food production shrimp (Parapenaeopsis stylifera) improved significantly
system. Aquaculture has become a lucrative business and forms of processing like freezing and canning
activity more recently, with elaborate cage facilities became popular. Scientific shrimp farming trials started
in inland and brackish waters supported by multi- in the 1950s. Shrimp farming in moderate density
species seed-production hatcheries. In many regions mode (i.e., a stocking rate of 5 to 8 shrimp per sq.m)

FISHING AND AQUACULTURE INLAND FISHERIES AND MARINE FISHERIES

560000
Inland fish Marine fish
500000

540028
540000
450000 432616
406942 406925
395969
388492 386700 386700
520046 400000
520000
VALUE OF OUTPUT, I N RS LAKHS

507267 507267 350000

VALUE OF OUTPUT, I N RS LAKHS

500000
493754 300000

250000
480000 474996
470077 200000

460000 150000
120567 120567
113121 107412
105262
100000
68054 74108
440000

50000

420000 0
2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18

Figure 2.6 Deflated value of output (VOO) from fisheries and aquaculture in Kerala from 2011-12 to 2017-18
in Rs lakh
Source: Department of Economics and Statistics, Government of Kerala
 FISHERIES | 35

began only in the 1980s. In the mid-1990s, white spot carp, giant freshwater prawn, penaeus vannamei, penaeus
disease, a severe blow to shrimp farmers, broke out in monodon, asian sea bass, pompano, cobia, mullets, crab,
Kerala. and mussel.
Fresh water aquaculture Among the above species, murrel, Asian sea bass,
In the freshwater sector, culture trials of fish like Indian mullet, basa, P. vannamei, and mussel seeds are in
Major Carp (IMC: rohu, catla, and mrigal) were particularly short supply. Establishing hatcheries for
initiated by the Fisheries Department in the 1970s these species is an important step forward.
and 1980s. The Indo-German project in Malampuzha Farming of Potential Species and Diversification
during this period played a significant role in Tilapia. Tilapia have a high growth rate, are adaptable
promoting reservoir fisheries through the production to a wide range of environmental conditions, and
of carp fingerlings. The comparatively low annual fish are able to grow and reproduce in captivity and to
production from aquaculture in Kerala (25,000 tonnes) feed voraciously. Tilapia can withstand high water
clearly indicates the low productivity of the existing temperature and low-levels of dissolved oxygen. The
system. Most importantly, these fish do not fetch the optimum temperature range is between 20-30ºC;
due market demand and price among consumers who they can tolerate temperature as low as 12ºC. Tilapia
prefer marine fish. In the near future, carp may remain tolerates brackish water conditions also (salinity up
only in reservoir fisheries and may be slowly replaced in to 20 ppt). They can be stocked at higher densities
small scale systems by tilapia, basa, anabas, murrel, and (10,000-20,000 per ha in ponds and up to 4 to 5 lakh
pearl spot. in intensive systems such as biofloc and RAS) than
Seed Production Sector other fish. This is why this fish has become an excellent
The seed demand in Kerala for the implementation of candidate species for aquaculture in tropical and semi-
the aquaculture programme (janakeeya matsya krishi) of tropical conditions.
the Fisheries Department is estimated to be 12 crore Tilapia culture is currently practiced in more
fresh water fish seed. A rough estimate shows that than 100 countries. Nile tilapia is generally the most
the indigenous production of freshwater fish seeds in important cultured species on account of its fast growth
Kerala is as low as 3.5 crore, produced mainly by the rate, adaptability to a wide range of culture conditions,
Government or its subsidiary hatcheries. This leaves a and high consumer acceptability. Nile, Red, Deep
deficit of 8.5 crore seeds, which is imported from other black, Deep red and Chitralada are considered to be
States. superior to ordinary tilapia (Tilapia mossambica). This
Apart from Government projects, there are species breeds prolifically in the culture fields from very
thousands of farmers engaged in fresh water young age and culture often fails on account of stunted
aquaculture projects. They use advanced technologies growth.
like Biofloc, Recirculating Aquaculture System (RAS)
Murrel. The potential of murrel as a candidate species
and Aquaponics. In 2019-20, farmers of the northern
for freshwater aquaculture has not adequately been
districts of Kerala are reported to have bought about
utilised in India other than in a few States, such as
two crore fresh water fish seeds (mainly for RAS,
Andhra Pradesh and Tamil Nadu.
aquaponics, and intensive pond culture) even after
we exclude the seeds used for Government projects. Vannamei shrimp (Penaeus vannamei) culture. The
Cargo flights are chartered exclusively for bringing American shrimp vannamei was legally imported into
seeds to Kerala and these are sold at airports. Seeds India in 2009. Shrimp being one of the most expensive
supplied by middlemen are of inferior quality and and sought-after sea foods in the world, its culture and
suppliers loot farmers by supplying disease-affected seed production have been receiving new attention in
seeds at exorbitant prices. As a result, the production is many countries, including India.
low. To control the unauthorised seed suppliers, a Fish The Kerala University of Fisheries and Ocean
Seed Act has been enacted by the Government. The Studies (KUFOS) attempted to popularise vannamei
establishment of multi-species hatcheries that can be farming through a plan scheme from 2011 to 2017.
operated on a season or species basis for meeting seed The University trained hundreds of farmers during that
requirement is the only way to overcome the problem period. Scientific cultivation on the lines prescribed by
of middlemen. The species that have high potential in the university’s protocol yields 10 tonnes per ha with a
the Kerala context include tilapia, murrel, basa, anabas, net profit of Rs 10 lakh in 120 days.
36 | KERALA DEVELOPMENT REPORT 2021

Mullet. Grey mullet (Mugil cephalus) is a candidate practised in many countries, it is a technology to be
species for brackish water aquaculture both in estuarine emphasised in the future.
fields and homestead ponds, preferably integrated Recirculating aquaculture system (RAS). Cultivable
with other species. Various combinations of striped species need to be fed with quality feed on a regular basis.
grey mullet and milkfish are considered successful In order to maintain water quality, efficient filtration
models for brackish water farming in India. Mullet is systems need to be installed to ensure the optimum
an integrated component of traditional brackish water growth of fish. A Recirculating Aquaculture System
aquaculture along the Indian coast and the mangrove ensures that water flows back to the culture system
forests provide an excellent ecosystem for its larval, after filtration (mechanical, biological or chemical
juvenile and sub-adult phases. Its scientific farming is filtration) in order that water quality is maintained
yet to be popularised. throughout the culture. Although this is an energy
Crab Culture. Crab culture is practised in brackish intensive and expensive mode of aquaculture, it is used
water (where the salinity of the water will be between in urban conditions where the water area available for
5-25 ppt). There are two types of crab rearing. aquaculture is limited.
Batch culture. Uniform sized crablets are stocked in Aquaponics. Aquaponics is a synergic system between
“grow-out” ponds. Culture duration is 6-8 months and fish and plants in which both grow together in one
the production rates vary from 1 to 2.5 tonne per ha integrated system. In an aquaponics system, water flows
with 50 per cent to 80 per cent survival. from a fish tank into a biofilter where bacteria break
Crab fattening. Water crabs are collected from the down the fish waste into an organic nutrient solution
wild and stocked in ponds, where, after a period of 20 in which to grow plants. The plants then absorb the
days, shells harden and the marketability of the crabs nutrients from the water before it is re-circulated to the
increases. fish tank. This is also a dynamic and energy-intensive
system and needs the utmost care in implementation.
Ornamental Fish Sector
Aquarium keeping is said to be the most popular Intensive aquaculture. Aquaculture can be practiced
hobby around the world after photography. The global intensively by modes such as the flow throw system,
trade of ornamental fish is as high as 10 billion USD cage culture, and pen culture. Cage culture in
per annum. Singapore, which has a total geographical reservoirs, backwaters and marine environments has
area of 719 sq. km, is the leading nation in aquarium much potential for sustainable development.
industry, with about 60 per cent of the total stake. Reservoir based scampi production. The giant
Although India has more than 2500 species of potential freshwater prawn, Macrobrachium rosenbergii,
ornamental fish, the trade volume remains negligible. commercially known as “scampi,” is a major delicacy
Kerala, though endowed with rich aquatic resources and has been exported for many decades from Kerala
and species diversity, lags behind in ornamental fish (M. rosenbergii may well be the only species that
production. goes to the export market from the freshwater sector
The industry in Kerala can focus both on domestic of the country). Its commercial seed production
marketing and exports. In the domestic market, fish was standardised in the 1990s by a team led by C.
like gold, guppy, molly, fighter, angle, gouramy, oscar, Mohanakumaran Nair. In 2005-06, the total national
and cichlids are traded while high-value species are production of the species reached a peak of 35,000
preferred in the export market. There is great potential metric tonnes. The prevalence of cultivation of the
for the production and export of koi carp, particularly species declined on account of a viral disease. Most
to Japan. scampi hatcheries were converted to Penaeus vannamei
Future Development of Aquaculture in Kerala hatcheries over this period. The shortage of seed is a
Advanced technologies in aquaculture major problem faced by this sector at present.
Biofloc. Biofloc Technology (BFT) is a technique There is an urgent need to revitalise freshwater
for improving the quality of water in aquaculture by prawn farming in Kerala. The deep and undisturbed
balancing carbon and nitrogen in the livestock system. reservoir environment can be well used to develop
BFT not only treats waste but also helps nutrition to scampi culture. It may well be possible also to obtain
aquatic animals. The Government of Kerala is promoting Geographical Indication (GI) certification for scampi
BFT wherever possible. Since it is a viable technology reared in Kerala reservoirs.
 ANIMAL RESOURCES | 37

Homestead ponds. Kerala should maximise the • to produce organic vegetables, meat, eggs, and
utilisation of water bodies for productive purposes. fish from aquaponics and other integrated
Domestic pond aquaculture is an excellent mode of systems with premium value
aquaculture to meet the fish requirement of families. • to improve the production of specific products
Tilapia, murrel and anabas are excellent candidate such as mussel and oysters
species for homestead farming. • to add value to aquaculture products
• to improve farm management and water
Organic shrimp farming. Of late, Government
quality management
regulatory agencies have introduced better management
• to improve diagnostics and health management
practices (BMPs) to address the need for sustainability
of cultivable fish
in aquaculture development. Possible regulations of
• to promote the cooperative movement in
aquaculture in different parts of the world include
aquaculture
restrictions, land use classification and zoning,
• to improve capacity building and
environmental impact assessment, mitigation plans,
professionalism in the aquaculture sector
permits, user fees and monitoring protocols.
• to maintaining food safety
There is immense potential for organic shrimp
• mangrove conservation and afforestation
farming in Kerala. Kerala has a long history of organic
• to ensure gender equality in the fisheries
shrimp farming. Traditionally, paddy-cum-fish culture
used the “trapping cum holding system” in which shrimp development
seeds along with other assorted fish were allowed to enter • to improve research and development in
the fields through the water inlets (sluice gate) with the association with the Kerala University of
tidal flow. The shrimps which remained in the fields for Fisheries and Ocean Studies
a particular period achieved marketable size and were Animal Resources in Kerala: An Assessment of
harvested using sluice bag nets during the tidal ebb. This Progress and a Roadmap for the Future
system was popularly known as “shrimp filtration”. Introduction
At present, wherever Vannamei shrimp culture The animal resources sector in Kerala contributed
is not possible for ecological reasons, Kerala could about 27 per cent to the Gross State Value Added
popularise organic tiger shrimp farming (species: (GSVA) from agriculture and allied sectors in 2018-
Penaeus monodon). This is Kerala’s native shrimp. 19. It is estimated that about 7.1 lakh households are
Unused or underused brackish water fields, including directly engaged in animal resources in Kerala. A large
mangrove areas, can be used for organic shrimp number of women are also involved in the workforce
farming. Local groups including Kudumbashree can be in this sector.
entrusted to look into the day-to-day operations of the As per the results of the Situation Assessment Survey
area including fishing, pre-processing, processing and (SAS), only 51.6 per cent of all agricultural households
marketing. in Kerala were engaged in animal farming in 2012-
Value addition. Most aquaculture products in Kerala 13, while the corresponding national average was 71.9
are sold raw, without any value addition. Importing per cent. Further, while the average monthly income
countries make an array of expensive products and of an agricultural household was Rs 11,888 in Kerala,
realise huge margins from, for example, Indian shrimp. only Rs 575 (4.8 per cent) came from animal farming.
Value addition is an area with much potential for In other words, animal farming, at present, is at best
income-enhancement in Kerala. a minor supplementary source of income for Kerala’s
rural households.
Summary
The expected outcomes of policy in inland aquaculture Performance of the Animal Resources Sector
should be: Livestock population
• to create additional employment, particularly Data on the population of livestock and poultry are
skilled employment available from the Indian Livestock Census, organised
• to enhance the production of fish and shrimp at periodic intervals. The data released for 2019 are
• to address food and protein security broadly encouraging for Kerala (Table 2.8). The total
• to improve farmers’ incomes livestock population in Kerala, after falling between
• to produce high value aquarium fish for global 2007 and 2012, rose from 27.3 lakh to 29 lakh
markets between 2012 and 2019. Within livestock, while cattle
38 | KERALA DEVELOPMENT REPORT 2021

Table 2.8 Population of livestock and poultry in to-point between 2011-12 and 2018-19, the slowdown
Kerala, 2007 to 2019 in lakh after 2014-15 is a matter of concern and needs urgent
Item 2007 2012 2019 attention. We shall now consider trends in VOO for
each sub-sector (Figure 2.8).
Total livestock population 35.8 27.3 29.0 Over the 12th Plan period, there was a sharp fall in
Cattle population 17.4 13.3 13.4 the VOO for milk and milk products. One reason for
Buffalo population 0.6 1.0 1.0 this fall was the incidence of the foot-and-mouth disease
Goat population 17.3 12.5 13.6 among cattle in Kerala in 2013-14, whose impacts
Pig population 0.6 0.6 1.0 continued through the 12th Plan period. About one
lakh animals were affected and more than 6000 animals
Poultry population 156.8 242.8 299.7
died. Within bovines, more than 33,000 animals
Source: Indian Livestock Census, various years
were affected and about 2800 animals died. Further,
population rose moderately, the population of goats and in 2016-17, there was a severe drought that adversely
pigs rose substantially. Within poultry, population grew affected the production of milk. The procurement of
consistently between 2007 and 2019. Between 2012 milk recorded a fall by about 1 lakh tonne in 2016-
and 2019, the poultry population in Kerala increased 17. In January 2016, Milma imported about 1.6 lakh
by about 57 lakh. tonne of milk per day from outside the State. Post-
Between 2007 and 2012, cattle population in drought, in January 2017, Milma was importing about
Kerala had sharply fallen by about 4 lakh animals. 4 lakh tonne of milk per day.
One reason for this fall in cattle population was the In the single year of the 13th Plan, there was a rise
high rate of slaughtering in the State, given the high in VOO in milk but it needs to be seen if the revival is
domestic demand for meat. It was in this context that maintained. The record in the 13th Plan would surely
the Government introduced the herd induction scheme be marred by the severe floods in the State in 2018
to reverse the fall in cattle population. Between 2006- and 2019. The 2018 floods resulted in loss of income
07 and 2019-20, a total of more than 80,000 milch through animal products and damage to infrastructure
animals and about 18,000 heifers were distributed to and livestock assets. More than 5,000 cows, 11 lakh
growers (Table 2.9). The rise, though moderate, of chickens, and 4.8 lakh ducks died totalling about 16.5
cattle population between 2012 and 2019 is a sign of
the success of the herd induction programme. Table 2.9 Number of cattle inducted as part of herd
induction utilisation plan fund, Kerala, 2006-07 to
Trends in GSVA and VOO
2019-20 in number
If we consider data on the GSVA in the livestock sector,
the overall growth pattern in the last decade shows that Year Number of animals inducted
there was period of growth between 2011-12 and 2014- Milch animals Heifers
15, and then a decline (Figure 2.7). In real terms, there 2006-07 5884 -
was an absolute decline in the GSVA by Rs 20,388 crore 2007-08 10,440 -
2008-09 7000 480
between 2014-15 and 2018-19. There was a moderate
2009-10 4079 750
pickup of growth in the first year of the 13th Plan, but
2010-11 4270 1260
the heavy floods of 2018 and 2019 resulted in a sharp
2011-12 2550 980
fall of GSVA in 2018-19 and 2019-20. 2012-13 3507 1000
If we consider the data on value of output (VOO) 2013-14 4717 1175
released by the Central Statistics Office (CSO), the 2014-15 6339 1770
findings on GSVA are corroborated (Figure 2.8).7 There 2015-16 7215 2145
was a period of growth till 2015-16, followed by a sharp 2016-17 6540 2320
fall in 2016-17 (the last year of the 12th Plan). There 2017-18 7063 3055
was a pickup in 2017-18, but lack of VOO data for 2018-19 5606 1780
more recent years constrains us from a further analysis 2019-20 5590 1267
of the 13th Plan period. Cumulative total 80,800 17,982
Thus, overall, while the livestock sector grew point- Source: Department of Dairy, Government of Kerala

7
Gross Value Added is defined as the value of output (VOO) minus the value of intermediate consumption and is a measure
of the contribution to GDP made by an individual producer, industry or sector.
 ANIMAL RESOURCES | 39
130000
128011
127185
stood at 25.4 lakh tonne, which was slightly higher
than the production figure of 25.2 lakh tonne for 2015-
16. Clearly, if there were no floods in 2018 and 2019,
125000
123040
123802

120000
there would have been a visible revival of production.
119621
Data on per capita milk production in Figure 2.9 also
117512
reaffirm these findings.
GSVA, IN RS M ILLION

115000 116544

112535 There have been significant achievements during the

110000
13th Plan period in dairy sector. Certain achievements
105000
107623
directly caused an enhancement in production and
productivity in the sector while some others were of
100000 policy importance.
In Kerala, the livestock sector is prominent and
95000
2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 one of the fastest growing sectors of rural economy. A
Figure 2.7 Gross State Value Added (GSVA) at positive trend is noticed in livestock population in the
constant basic prices, livestock sector, Kerala, 2011-12 State. Compared to last two Censuses (showing a trend
to 2019-20 base year 2011-12 in Rs million of declining population), 20th Livestock Census shows
Source: CSO one per cent increase in livestock population, 9 per cent
increase in goat population and 25 per cent increase
lakh livestock death. The total damage and loss for in poultry population. Emergency veterinary service
the livestock sector was calculated at Rs 687.5 crore. during night hours extended to all the 152 blocks
Estimated income loss to the livestock subsector was Rs from 45 blocks. A new multi-speciality veterinary
519.73 crore, including production losses and decline hospital was made functional at Kudappanakkunnu
in egg and milk production. in Thiruvananthapuram. Wild life study centre
After 2011-12, there was also a sharp fall in the and oncology wing established at State Institute for
VOO in dung. At the same time, there was a growth Animal Diseases, Palode. National Accreditation
in the VOO in egg and meat between 2011-12 and Board for Testing and Calibration Laboratories
2017-18. There was a sharp growth in VOO from (NABL) accreditation obtained for four Laboratories
“increment in livestock,” the estimates of increment (Labs) under the Department namely, State Institute
in livestock population are estimated by extrapolating for Animal Diseases (SIAD) Palode, Avian Disease
the population figures available from the successive Diagnostic Laboratory (ADDL) Thiruvalla, Rinder
rounds of Indian Livestock Census. In other words, this Pest Eradication (RPE) laboratory Palakkad, and State
is simply a reflection of a rise in livestock and poultry Laboratory for Livestock, Marine and Agri Product
population over the years. Thus, the VOO data also (SLMAP) Ernakulam. The new institutions namely,
raise a number of issues of concern in Kerala’s animal layer farm at Ayur, Thottathara in Kollam, hi-tech
resources sector that requires urgent policy attention. dairy farm at Kuriottumala, Livestock Management
Production Estimates Training Centre at Athavanad in Malappuram and at
Let us now come to direct estimates of production in Sulthanbathery in Wayanad District were established.
the animal resources sector. To begin with, data on milk A new scheme Comprehensive Livestock Insurance
production in Kerala between 1992-93 and 2018-19 Scheme “Gosamrudhi” has the lowest premium rate
are given in Figure 2.9. Milk production grew from available in the State, under the scheme 1,86,650
18.9 lakh tonne in 1992-93 to 27.2 lakh tonne in cows were insured. Through the scheme on animal
2001-02, which was a commendable stretch of growth. resource development for improving the livestock
There was a sharp fall by about 7 lakh tonne in milk resources in the State, various projects such as support
production between 2001-02 to 2004-05. Thereafter, for commercial goatery, male calf fattening schemes,
there was another period of growth between 2005-06 interest subvention for loans taken for animal resources
and 2012-13, when milk production rose again to 27.9 sector were implemented.
lakh tonne. Between 2012-13 and 2016-17 (the 12th Animal Husbandry Department has developed
plan period), milk production fell again by about 2.7 Geographic Information System (GIS) based mapping
lakh tonne. In the 13th Plan period, the decline in milk of farmers “Bhoomika” to build a geospatial data
production was arrested and there was a moderate rise base of farmers engaged in animal resources activities
in milk production. The milk production in 2019-20 for effective management and monitoring of health,
40 | KERALA DEVELOPMENT REPORT 2021

breeding, production, risk and disaster management, producers and play a vital role in the rural economy.
and human resource management. The institutions During the period, 134 dairy cooperatives have been
coming under the purview of the department has been newly registered and 133 dormant societies revived and
brought under the geo mapping system. Kerala Livestock made functional. Annual milk production of the State
Development Board is developing a new software is 26 lakh Metric Tonne (MT) and the milk collection
application for herd book registration electronically through dairy co-operatives has reached a record figure
in association with IIITMK, so that the data could be of 21.37 lakh litre per day in December, 2021. There
synched with similar applications of Animal Husbandry was around 30 per cent hike in milk procurement
Department and Dairy Development Department. during the period from 2015-16 to 2020-21. Around
As part of Rebuild Kerala Initiative (RKI), an 9.5 lakh person days of employment generated every
amount of Rs 2.2 crore sanctioned to establish two year in the Kerala dairy co-operative sector. As a
Mobile Tele-veterinary units at Ernakulam and Kannur measure of transparency in the activities of dairy co-
districts and each comprises of advanced diagnostic operatives “unified accounting software” covering dairy
aids such as portable X ray unit, portable ultrasound co-operatives and other stake holders established. For
scanner, surgical equipments and animal lifting device. stabilising the dairy sector, Kerala Co-operative Milk
Centre for Development of Advanced Computing Marketing Federation (KCMMF) has initiated the
(C-DAC) is the implementing agency for the project preliminary works of establishment of a milk powder
and the project will be completed within 8 months factory of 10 MT per day at an estimated cost of Rs 54
period. Under the “Subhiksha Keralam” project, an crore at Moorkanad in Malappuram District.
amount of Rs 382.24 crore (State Plan, Rs 51.44 crore, As far as the productivity of cattle is concerned,
RKI – livelihood support package, Rs 77.00 crore Kerala stands second in the country (10.22 litre per day)
and LSGI schemes, Rs 254.80 crore) is included for next to Punjab. Average productivity of Indian breed of
implementation of Animal Husbandry Department cattle is 3.85 litre/day and crossbred cattle is 7.85 litre
schemes including the projects, namely, Govardhini, per day. The Dairy Department being the nodal agency
a rural backyard goat development scheme under for fodder development activities could produce 15.88
National Livestock Mission (CSS), commercial goatery, Lakh Metric Tonne (LMT) of additional fodder and
goat satellite unit and male calf fattening. 96,087 farmers benefitted from this programme. By
“Kerala chicken” is a Rebuild Kerala Initiative (RKI) utilising an amount of Rs 10.05 crore, a new scheme
of the State at a project cost of Rs 63.10 crore intended namely, massive fodder cultivation implemented in
to supply safe broiler chicken at reasonable price to the barren lands (344 ha) and distribution of green fodder
consumers and to develop a viable livelihood vocation and dried fodder through dairy co-operatives. A Cattle
to the farmers. The project envisages to establish 2600 Feed Act is intended to ensure the quality of cattle
broiler rearing farms and 240 Kerala chicken sales outlets feed produced and marketed is under preparation.
across the State and also to establish breeder farms, Permanent quality assurance facilities established at
rendering plants for waste management, processing permanent check posts namely, Meenakshipuram,
plants, reefer vans, testing facility for meat quality Aryankavu, and Parassala. The Integrated Dairy
analysis under various stakeholders, namely, Animal Development Programme and Dairy Zone Programme
Husbandry Department, Kudumbashree, Kerala State in selected districts or blocks provided a great impetus
Poultry Development Corporation (KSPDC), Meat to the dairy development activities. Establishment of
products of India (MPI), Brahmagiri Development Heifer parks and Calf adoption programme also helped
Society (BDS), Kerala Veterinary and Animal Sciences to stabilise the dairy sector of the economy. As the
University (KVASU) and Local Self Government part of herd induction programme financial assistance
Department (LSGD). were extended for inducting 28,414 milch animals and
The dairy sector plays a pivotal role is ensuring 9,058 heifers. The Comprehensive Dairy Insurance
the socio-economic stability of the population in the Scheme “Ksheera Sandvanam” covering the cattle
State. In Kerala, around 8 lakh families are involved (18,278) and cattle owner (60,792) is for ensuring the
in dairying activities. The dairy co-operative societies socio-economic stability of farmers.
are the backbone of dairy sector of Kerala, of which To manage the flood in Kuttanad region and its
3.94 lakh farmers registered under the co-operative effects on cattle population, preliminary activities
sector. There are 3643 registered dairy co-operatives in were initiated for the establishment of two elevated
the State which ensures steady price and market to the and Community Cattle sheds at Alappuzha. Being the
 ANIMAL RESOURCES | 41

nodal agency for distribution of Kisan Credit Card about 9 lakh litre of milk were imported into the State
(KCC), financial assistance was availed for an amount every day.8 By 2019-20, Kerala was able to reduce the
of Rs 270.8 crore to 46,547 farmers. The monthly dependence on milk imports to about 3.2 lakh litre per
pension of eligible pensioners enrolled to Kerala Dairy day. Other indirect indicators of milk production also
Farmers Welfare Fund Board was hiked from Rs 500 show promising outcomes for the 13th Plan period. For
per month to Rs1600 per month per pensioner. Under instance, in 2015-16, Milma used to import at least 6 to
the “Subhiksha Keralam” project, an amount of Rs 7 lakh litre of milk per day from outside Kerala. In 2020,
88.08 crore with a Plan assistance of Rs 51.07 crore Milma was importing only about 88,000 litre of milk
was allocated for implementation of Dairy Department per day. Further, Milma exports about 58,000 litre per
schemes including induction of milch animals and day to powder factories outside the State. If we deduct
heifers, fodder cultivation, milk incentive, subsidised exports from the imports, Milma’s deficit declines to
cattle feed bags, cattle shed construction/renovation, just 30,000 litre per day. The fall in Milma’s reliance
farm mechanisation, insurance and revolving fund. on imported milk indicates a possible rise in domestic
Under the Flood Rehabilitation Programme, an milk production which is not captured adequately in
amount of Rs 44 crore during the period 2018-2020 official data. More clarity will be obtained when milk
had been utilised by the Department. Around 19,930 production data for 2020-21 become available.
farmers were assisted in 2018-19 and 28,170 farmers in The moderate revival of milk production during
2019-20. Rs 11.83 crore was utilised to distribute cattle the 13th Plan period was a reflection of improved-
feed at subsidised rates to farmers who were otherwise levels of intervention by the Government of Kerala in
suffering due to the Covid-19 pandemic crisis. Around milk procurement (see Table 2.10). In 2016-17, the
2 lakh farmers benefited out of this programme. In procurement of milk through dairy cooperatives was
addition to the same, Rs 35.24 crore was extended as 5.9 lakh tonne. From 2017-18, this could be raised up
Cattle Feed Subsidy to dairy farmers of the State. to 6.8 lakh tonne by 2019-20. On a per day basis, this
Data with the Dairy Department show that Kerala’s represented a rise of procurement from 16.3 lakh litre
dependence on imported milk is declining. In 2016-17, per day to 18.6 lakh litre per day.
LIVESTOCK MILK GROUP
1450000 720000

1424503 1425887

1405043 700000 695963

1400000

1390538 677290 677840

680000
1380194
VALUE OF OUTPUT, IN RS LAKHS

VALUE OF OUTPUT, IN RS LAKHS

1363937 660766
1350000
660000
663374

642204
640000
1300000

1298689
628616
620000

1250000

600000

1200000 580000
2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18

EGGS MEAT GROUP

80000 700000

74859 75667
70000 73820 645444
600000 624637 631872
70855 70966 618943
67625 593450 594899

60000
500000 520730
VALUE OF OUTPUT, IN RS LAKHS

VALUE OF OUTPUT, IN RS LAKHS

50000
51527
400000

40000

300000

30000

200000
20000

100000
10000

0 0
2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18

8
The total deficit in milk production, when estimated on the basis of a requirement of 250 gram per person for 365 days for
the projected population, is placed at a slightly higher level of 4.6 lakh tonne.
42 | KERALA DEVELOPMENT REPORT 2021

DUNG INCREMENT IN LIVESTOCK

46000 7000

6224
44000
44206 6000

42675 5346
42000 5000
VALUE OF OUTPUT, IN RS LAKHS

VALUE OF OUTPUT, IN RS LAKHS

41303 4600

40000 40037 4000 3964

38921 3423

38000 3000 2962

37893

36987 2568

36000 2000

34000 1000

32000 0
2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18

Figure 2.8 Value of output (VOO) from livestock and selected sub-sectors, Kerala, in 2011-12 prices, 2011-12 to
2017-18 in Rs lakh
Source: CSO
In the case of egg production, there was a clear phase import of processed meat (i.e., excluding live animals
of rise in production between 1992-93 and 2001-02 transported for slaughter) was at 28,000 tonne.
by about 23 crore eggs (Figure 2.10). However, there Domestic demand for meat has been growing at
was a sharp fall in egg production between 2001-02 a faster rate. An indication of this is available from
and 2006-07 by about 80 crore eggs. Thereafter, egg the data on import of different types of livestock and
production rose sharply between 2006-07 and 2014- poultry animals into Kerala from 2012-13 (Figure
15 by about 130 crore eggs, which was a commendable 2.11). While there was a moderate decline in the
growth performance. However, egg production fell again import of cattle after 2014-15, the import of buffaloes
after 2014-15, and there was a decline in production rose over the same period. While the import of goats
by about 32 crore eggs between 2014-15 and 2019-20. was largely unchanged, the import of pigs sharply rose
The total import of eggs into Kerala in 2019-20 was from 11,311 in 2012-13 to 77,670 in 2019-20. So did
254.8 crore eggs, while the domestic production stood the import of adult poultry birds into the State, which
at 218.1 crore eggs. rose from about 3.6 crore in 2012-13 to about 10
In the case of meat production, there was a moderate crore by 2019-20. The question to ask is if Kerala can
rise in meat production by about 55,000 tonne increase its dependence on domestically grown animals
between 2011-12 and 2019-20 (see Figure 2.10). The for slaughter.
decline in 2018-1 9 and 2019-20 appears to be a result Major Gains in the 13th Plan Period
of the floods of 2018 and 2019. In 2019-20, the total The total allocation for the animal husbandry and dairy
production stood at 4.55 lakh tonne, while the total departments has risen consistently over the past decade
MILK PRODUCTION PER CAPITA AVAILABILITY OF MILK
3000 250
2791 234
2718 2716 2711 227
2645 2655 2650 221 223
2605 219 216
257625482543
2532 2509 2520 210
2420 2419 2441 203 203 206 200
2500
2343 198 196 201 197
201
200
189 192 189
PER CAPITAL M ILK AVAILABILITY, IN GRAM S PER DAY

2258 2253 190

2192 181 183
2118 2111 2119 174
173
2001 20252063 169 171
M ILK PRODUCTION, IN ' 000 TONS

2000 1889

150

1500

100

1000

50
500

0 0

Figure 2.9 Milk production and per capita availability, Kerala, 1992-93 to 2019-20 in thousand tonne and gram
per day
Source: Department of Dairy, Government of Kerala
 ANIMAL RESOURCES | 43

Table 2.10 Procurement milk through dairy LSGs. The total expenditure in the sector through
cooperatives, Kerala, 2007-08 to 2019-20 in lakh MT LSGs rose from Rs 44 crore in 2012-13 to Rs 182 crore
per annum and lakh litre per day in 2019-20. The share of animal resources sector in the
total production expenditures of LSGs also rose from
Year Procurement of milk through dairy
28.3 per cent in 2012-13 to 40 per cent in 2019-20. As
cooperatives
the share of the total expenditure of LSGs, expenditure
In lakh MT per In lakh litre per on animal resources also rose from 3.5 per cent in
annum day 2021-13 to 7.4 per cent in 2019-20.
2007-08 4.1 11.2 There were important institutional interventions
2008-09 4.0 11.1 made in the animal resources sector during the 13th
2009-10 4.3 11.7 Plan period. We shall list a few important points below.
2010-11 4.1 11.2 1) Higher procurement of milk through the dairy
2011-12 4.5 12.4 cooperatives and the continuation of the herd
2012-13 4.9 13.4 induction programme have already been alluded
2013-14 5.3 14.4 to. The member ship in dairy cooperatives has risen
2014-15 5.6 15.3 by 25,000 during the 13th Plan period.
2015-16 6.0 16.4 2) The opening of 24*7 veterinary hospitals was an
2016-17 5.9 16.3 important initiative during the 13th Plan period.
2017-18 6.6 18.1 Currently, there are 31 such hospitals across the
2018-19 6.8 18.6 State that cover 45 blocks. In 2020-21, the presence
2019-20 6.8 18.6 of 24*7 hospitals is planned to be expanded from
Source: Department of Dairy, Government of Kerala 45 blocks to all the 152 blocks of the State.
3) An insurance scheme for cattle has been introduced
(Table 2.11). The total Plan allocation rose from Rs 175 by the Animal Husbandry and Dairy Departments.
crore in 2011-12 to Rs 436 crore in 2019-20, which was Their schemes together currently cover more than
a 149 per cent rise. However, expenditures have lagged 85,000 animals.
behind allocations and the total spending in 2019-20 4) Four regional laboratories under the Animal
was only Rs 232 crore out of the allocation of Rs 436 Resources have received accreditation status over
crore. Two notable deductions from Table 2.11 are that the 13th Plan period.
the utilisation of funds from the Central sector schemes 5) Two tele-veterinary units have been established.
and Rural Infrastructure Development Fund (RIDF) in 6) About 500 artificial insemination centres for goat
National Bank for Agriculture and Rural Development have been opened, which was instrumental in the
(NABARD) has declined for the animal husbandry and rise in goat population seen during the livestock
dairy departments after 2016-17. census of 2019.
In addition to Plan funds listed in Table 2.11, Strategies for Growth
the departments also make use of the funds allocated It is important to understand some of the basic features
through the Plan to the local self-Governments (LSGs). of the animal resources sector in Kerala before we
Table 2.12 provides the data on expenditures through formulate strategies for the future.
EGG PRODUCTION MEAT PRODUCTION
300 480

469 469
466
248 250 244
250 460 457
234 235 455
229
224
218
446
EGG PRODUCTION, IN CRORE NUM BERS

203 204 205 203 200

199 202
200 192
M EAT PRODUCTION IN ' 000 TONS

184 440
177
169 170
163
426
151
150 138
135 420 416
128
120 120 120

100 401
400

50

380

360
2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20

Figure 2.10 Production of egg and meat, Kerala, 1992-93 to 2019-20 in thousand and thousand tonne
Source: Department of Animal Husbandry, Government of Kerala
44 | KERALA DEVELOPMENT REPORT 2021

CATTLE AND BUFFALO GOATS

2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20

1,23,910
1,20,268
1,19,718
4,94,286

1,10,439
4,67,336

4,35,869
4,18,103
4,12,084

96,867
3,98,840

95,276
3,96,824

94,299
3,54,801
3,51,406

3,22,546
3,16,256

3,15,047
2,81,655
2,61,696
2,40,911

1,50,638

16,520
CAT T LE BUF FA LO G OAT

PIGS POULTRY, ADULTS AND CHICKS

2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20

10,02,51,592
77,670

9,24,18,775
9,03,51,053

8,45,42,875
7,56,20,048
50,171

5,38,13,684
5,08,39,920

4,59,71,820
4,59,04,990
4,13,53,029
35,828

3,81,78,700
33,885

3, 61, 43, 284

3,63,56,800
3,57,11,802
3,19,18,114
28,804

3,09,63,403
22,119
16,063
11,311

PI G PO ULT RY (A DULT ) PO ULT RY (CHI CKS)

Figure 2.11 Import of animals into Kerala, by type, 2012-13 to 2019-20 in number
Source: Department of Animal Husbandry, Government of Kerala

First, Kerala’s dairy sector may be characterised as and 3 kg per day respectively. The productivity of 10.2
a low input-low output system. Most of the farming kg per day in Kerala for exotic/crossbred animals was
of animals in Kerala takes place in small homesteads the second highest among Indian States after Punjab
integrated with crop cultivation and fisheries. The (13.4 kg per day). This advantage for Kerala was due to
average herd size in small homesteads does not normally the high percentage of exotic/crossbred animals in the
exceed three, while in medium sized homesteads the population compared to other States. Data from the
herd size goes up to nine. More than 55 per cent of Livestock Census of 2019 show that about 94 per cent
cattle farmers maintain herd sizes of two or three, while of cattle in Kerala are either exotic or crossbred and
32 per cent maintain single-cow units. only 6 per cent are indigenous or non-descript breeds.
The number of commercially operating dairy farms In India, on the other hand, only 26 per cent of the
with larger herd sizes is less in Kerala. Data from cattle are exotic or crossbred and the remaining 74 per
the Dairy Department show that there were only 41 cent are indigenous or non-descript breeds.
commercial farms (0.2 per cent) that had herd size The question in Kerala is how it could build on
more than 100 (Table 2.13). About 92 per cent of the the progress in artificial insemination and genetic
farms had herd size less than 20, out of which about 70 improvement made over the years into concrete gains
per cent had herd size 5 to 10. In other words, Kerala in milk production. The high genetic quality of Kerala’s
has enormous potential in expanding the average herd cattle population is a most appropriate launchpad for
size and benefit from economies of scale in production a rapid rise in milk production in the recent future. At
and marketing. the same time, Kerala should also aim at improving the
Secondly, even though herd sizes are low, genetic basis of its livestock and raise productivity to at
productivity of cattle in Kerala is higher than the least 13 to 14 litre per day.
national average. The average milk yield per animal in Thirdly, demand for milk is expected to rise over
India for exotic or crossbred animals is 7.9 kg and for the next decade. A study by the National Council of
indigenous or non-descript animals is 3 kg per day. The Applied Economic Research (NCAER) in 2014 argued
corresponding figures for Kerala are 10.2 kg per day that the total demand for milk was 27.9 lakh tonne in
 ANIMAL RESOURCES | 45

Table 2.11 Plan allocations and expenditures, Department of Animal Husbandry and Dairy, Kerala, 2011-12 to
2020-21 in Rs crore
Year Free Plan + SS CSS RIDF Total
Allocation
2011-12 156 7 12 175
2012-13 223 18 23 264
2013-14 285 17 23 325
2014-15 332 17 33 382
2015-16 335 27 43 405
2016-17 333 22 50 404
2017-18 356 19 50 425
2018-19 388 16 50 453
2019-20 394 12 30 436
2020-21* 345 12 22 379
Expenditure
2011-12 200 15 0 215
2012-13 219 23 0 242
2013-14 263 11 12 286
2014-15 277 41 17 335
2015-16 274 6 21 301
2016-17 309 13 0 323
2017-18 365 9 0 374
2018-19 327 2 0 329
2019-20 228 4 0 232
2020-21* 150 2 1 153
Note: Plan includes Plan schemes, Central schemes and State share for Central schemes
* As on October 21, 2020
Source: Kerala State Planning Board

Table 2.12 Expenditure in animal resources and dairy by local government institutions, Kerala, nominal figures,
2012-13 to 2019-20 in Rs crore
Year Expenditure Production Total AH/P (%) AH/T (%)
on AH and expenditure expenditure
Dairy (AH) (P) (T)
2012-13 44 154 1250 28.3 3.5
2013-14 69 226 1942 30.3 3.5
2014-15 71 240 2153 29.6 3.3
2015-16 72 242 2401 29.6 3.0
2016-17 137 373 2041 36.6 6.7
2017-18 232 660 2750 35.1 8.4
2018-19 234 674 3330 34.7 7.0
2019-20 182 455 2445 40.0 7.4
Note: AH-Animal Husbandry
Source: Kerala State Planning Board
46 | KERALA DEVELOPMENT REPORT 2021

Table 2.13 Classification of dairy farms by herd size, Kerala, 2019-20 in number and per cent
Size of herd in dairy farms Number of dairy farms Share in total (%)
5 to 10 9878 69.5
11 to 20 3166 22.3
21 to 50 984 6.9
51 to 100 152 1.1
More than 100 41 0.2
Total 14221 100.0
Source: Department of Dairy, Government of Kerala

2009-10, which would rise to 32.9 lakh tonne in 2020, Fifthly, in the case of meat, Kerala produces only
34.2 lakh tonne in 2025 and 35.2 lakh tonne in 2030. about 10 per cent of its domestic requirement. But
Based on an interventionist scenario, the supply of milk this is with regard to animals of the State slaughtered
was projected to be 31.5 lakh tonne in 2020, 35.1 lakh in the State. At the same time, if we consider animals
tonne in 2025 and 39.2 lakh tonne in 2030. Clearly, transported from outside the State and slaughtered in
the supply projections went awry as the production of the State, Kerala produces about 73 to 75 per cent of
milk declined after 2012. Thus, Kerala is lagging at least its domestic requirement. NCAER’s 2014 projections
by 4 lakh tonne with regard to the supply projections in show that the demand for meat in Kerala was 4.8 lakh
2020. Given an expected rise in milk demand, Kerala tonne in 2010, which was to rise to 6.5 lakh tonne
has to focus on raising its milk production by at least 50 in 2020, 7 lakh tonne in 2025 and 7.4 lakh tonne in
per cent in 2030. The State should use the advantage of 2030. But Kerala produced only 4.5 lakh tonne of meat
its higher productivity to achieve this objective through in 2018-19. Production has to grow at least 4 per cent
improved organisation of production. per annum over the next decade for Kerala to reach
Fourthly, in its efforts to raise milk production, closer to self-sufficiency in meat production.
Kerala would face a key constraint in the form of fodder Sixthly, in the case of egg, the demand was estimated
production. Studies show that the ideal roughage at 229 crore eggs in 2009-10, which was to rise to 300
crore eggs in 2020, 322 crore eggs in 2025 and 338 crore
to concentrate ratio for livestock is 60:40. In Kerala,
eggs in 2030. But Kerala actually produced only 229
the share of concentrate is currently above 60 per
crore eggs in 2018-19. This is close to what NCAER had
cent. This imbalance in feeding is known to create a
projected as production under an optimistic scenario in
number of stresses to the animals. Productivity can be
2020. But production has to grow by about 120 crore
increased more rapidly with an ideal 60:40 feed ratio;
additional eggs over the next decade.
diets with more grain are more digestible and ferment
faster, which provides nutrients to animals at a faster Table 2.14 Area under fodder farms, Kerala, 2006-07
rate. Fibre-deficient feed can lead to the disruption of to 2018-19 in ha
physiological mechanisms in animals; they lead to the
accumulation and lack of absorption of fermentation Year Area under Hybrid Napier (ha)
acids in the rumen. The immunity to different diseases 2006-07 2280
is also likely to be lower in animals with a higher 2007-08 -
concentrate feed ratio. 2008-09 1770
Data on the area cultivated with hybrid Napier are 2009-10 2235
given in Table 2.14. As is clear, there was a decline in 2010-11 2650
the area cultivated with fodder over the past few years. 2011-12 3109
Kerala cultivates just over 2000 ha of fodder, which 2012-13 2594
produces only 46 per cent of the fodder requirements 2013-14 2816
based on a 60:40 ratio. It is estimated that fodder 2014-15 3727
cultivation would be required in at least 13,000 ha if 2015-16 2665
Kerala is to meet the roughage production target based 2016-17 2645
on a 60:40 ratio. Subsidy to the tune of Rs 2000 per ha 2017-18 2050
is provided currently for fodder cultivation, but it has 2018-19 2285
not helped. Source: Department of Dairy, Government of Kerala
 ANIMAL RESOURCES | 47

There are some important problems that arise when Many of the existing regulations under the Kerala
Kerala plans to expand the size of its poultry industry. Municipal Building Rules 1999 to set up big dairy
They are listed below: units (i.e., with 6 animals or more) discourage dairy
• Lack of sufficient land for starting poultry entrepreneurs from taking up such ventures. For
farms. Kerala is a thickly populated State and instance, the presence of more than five cattle (or for
poultry farms can be started only at sufficient that matter, more than five pigs and more than 20 goats)
distances from human dwellings. implies that the unit would be considered “hazardous”
• High cost of labour. The labour cost is very high under the 2012 rules of the Kerala Panchayati Raj Act.
in Kerala compared to other States. More recently, many allegations of harassment have
• High feed cost. Chicken is simple-stomached arisen with regard to implementing the regulations
and most of the poultry feed ingredients are also of pollution control in dairy farms, especially those
human food. At present, the cost of poultry feed is equipped with Bulk Milk Chilling Centres (BMCC).
determined by a private consortium, as the market Necessary steps may be taken to deregulate the
share of public sector poultry feed production is sector so as to encourage commercial dairy farming on a
not significant. This increases the feed costs. larger scale. More recently, the National Green Tribunal
• Reducing numbers of backyard poultry units. (NGT) has issued a new set of guidelines for dairy farms
The backyard poultry units were the strength of and gaushalas where dairy farms have been moved from
poultry production in Kerala. But their number is red category to orange category. Here, rules for dairy
reducing at a fast pace along with the fragmentation farms in Kerala have to be simplified and unified.
of landholdings. Low cost Effluent Treatment Plants (ETP) have to be
• Lack of proper extension activities. Farmers are encouraged, financially assisted and popularised. The
not sufficiently aware about the modern methods Government will also have to explore higher subsidies
to rear small numbers of chicken in partial for feed and electricity as well as offer tax exemptions
confinement without causing serious damage to to new plants. Presently, wet market sales attract no tax
the vegetation. Such technologies are not easily but packaged meat is taxed.
accessible at low cost. In sum, Kerala will have to improve the “Ease of Doing
• Reduced availability of quality cross bred Dairy Business” through consciously designed policy.
chicks. Cross bred chicks suitable for profitable
Modernisation of dairy farming
backyard rearing are not easily available from
Currently, the classical cooperative model dominates
reliable sources.
Finally, there is also enormous potential for the the organisational structure of the dairy cooperative
production of egg, meat and milk in ducks, goats and sector. But many developing countries (even Anand Co-
pigs. Both goat and pig population has grown between operatives) are moving beyond the classical co-operative
2012 and 2019. Pigs are efficient converters of feed into models to introduce commercial and competitive
meat and can fit into diverse systems of management. elements. India’s cooperative sector now faces stiff
Cost and availability of feed and the price of pigs make competition and is starting to lose ground to other
piggery a very profitable vocation in rural Kerala. Goat competitors who are more professionally managed. The
is a multi-functional animal and can efficiently survive cooperative sector is responding by adapting its business
on available shrubs and trees even in low fertility lands. models to the new generation models. For instance,
Ducks are grown in the Kuttanad region and survive cooperative dairy enterprises can now be registered as
on a variety of food sources like grasses, aquatic plants, producer companies under the Companies Act. There
fish, insects, worms and small molluscs. is need to promote producer companies in the livestock
sector in Kerala also. Graduation from subsistence,
Specific Policy Pathways
small holder milk producers to small, commercial dairy
Promotion of larger dairy farms farmers will be fundamental to put the strategy into
We have already alluded to the relatively small size of action.
dairy units in Kerala. Kerala should tap the potential of The Government should undertake a study of the
rural entrepreneurship and popularise the establishment marketing and supply chains in the dairy sectors of
of larger commercially run dairy farms in Kerala. Here, the State, and initiate measures to remove bottlenecks
it is necessary that policy helps to converge three from the producer to the consumer. The use of modern
factors: high yielding cows, fodder or feed availability Information Technology (IT) infrastructure, to develop
and marketing facilities. the marketing network of milk, meat and eggs in the
48 | KERALA DEVELOPMENT REPORT 2021

State should be encouraged. This includes the linking Government schemes. The concept of purchasing
up of all dairy cooperatives in the State under single animals from outside the State to increase the State’s
inter-connected software. animal population needs a review. This is not to belittle
New advances in breeding the gains to the State’s animal wealth from the import
The following strategies are recommended for the cattle of animals. But it has also been argued that animals
breeding. brought from outside the State have contributed to an
1) A demand exists in the field for germplasm of increase in disease incidence in Kerala (including of
high yielding dairy breeds. Such germplasm needs haemoparasites and viral diseases).
careful introduction in the field as the progeny may Kerala may have to gradually phase out its
not be viable under less favourable farm conditions dependence on cows from other States over the next
prevalent in the State. A two-tier system may be five years. A technical committee of experts may be
advocated with the first tier consisting of regular constituted to analyse the strengths and weakness of
pedigree bull semen (average to moderately high the importing animals. It has also been suggested that a
yielders) for common livestock farmers and a quarantine period of 28 days should be insisted up on
second tier with semen from high pedigree bulls when cattle are imported from other States. Also, heifer
for elite cows of farmers having a conducive farm nursery units based on rural entrepreneurship may also
environment for animals with such genetic and be promoted as a source of future milch cow herd. On
phenotypic make up. similar lines, male calf or buffalo rearing units may also
2) Field-level application of allied Assisted to be promoted as a source of good quality meat.
Reproductive Technologies like induced breeding Identification and registration of all animals
and timely artificial insemination and the use of The identification of animals is a major constraint in
sexed sorted semen should be explored. the collection of accurate demographic data of animals
3) Infertility among crossbred cattle is a major long- in the State. Lack of accurate data adversely affects the
standing concern. The State average for age at first implementation of developmental projects as well as
calving should be brought down to 24-30 months traceability of animal units.
from around 4 years. Inter-calving period should be Feed and fodder
brought down to 12-14 months from the present Kerala needs an appropriate fodder plan to raise fodder
22 months. While the problem has been known for production. Currently, there are 5741 fodder plots in
some time, the exact reasons, which may be multiple, the State, as per the database maintained for Dairy
needs to be analysed and identified for strategic Department schemes. Of these 5741 plots, 4362 plots
interventions to be made. Hence, an integrated (or 76 per cent) are between 1 acre and 2.5 acre in area.
assessment of infertility prevalent in the crossbred There are 952 plots (or 17 per cent) of area between
dairy cattle of the State should be attempted, with 2.5 acre and 5 acre. There are only 427 plots (or 7
the involvement of Kerala Veterinary and Animal per cent) of area more than 5 acre. Kerala may need
Sciences University (KVASU), Animal Husbandry to promote commercial cultivation of fodder on large
Department (AHD) and the Kerala Livestock scale if it needs to meet its demand in the next decade.
Development Board (KLDB). Focus should be Suitable contract farming models should be explored to
on zone-wise management of bovine infertility promote fodder cultivation.
by establishing facilities/centres for effective 1) Promotion of commercial fodder production with
surveillance, evaluation and intervention. an assured market through co-operative societies
4) A plan for the conservation of indigenous breeds to and linking fodder cultivation with Mahatma
preserve genetic variability (of breeds indigenous to Gandhi National Rural Employment Guarantee
Kerala), including recognising of local breeds and Scheme (MGNREGS) should be attempted. The
use of assisted reproductive technologies, should be incentives should include an assured market price
rolled out. Steps to be taken to register Kasaragod to the producers.
Dwarf and other native cattle as breeds for effective 2) Promotion of fodder cultivation in waste lands
utilisation of Central scheme in this sphere. should be encouraged through Kudumbashree
Introduction of animals units or Self- help Groups (SHGs) or entrepreneurs,
Local availability of cows is a concern for farmers cows and quality of fodder produced should be ensured
are purchased from outside the State under various through proper soil management.
 ANIMAL RESOURCES | 49

3) Hydroponics and Azolla cultivation schemes plans for cattle and buffalo meat, chevon, pork and
implemented through departments should be chicken. Some of the challenges such a plan would face
reviewed by a technical committee of experts. are as follows:
4) Malabar Rural Dairy Foundation (MRDF) may be 1) Backward integration for rearing of animals ensuring
entrusted with the collection, bailing, transport veterinary health coverage and concentrated feed,
and distribution of straw from intensive paddy individual identification and traceability, would
cultivation areas to needy farmers. be a requirement. Better forward integration of
5) Since the price of milk cannot be increased, subsidy the products with markets to be built through the
should be given in the form of feed as an incentive establishment of supply contracts with domestic
to the farmers. retail chains, restaurants and hotels, as well as
Surplus of milk and product diversification market facilitation measures.
One major lesson learned from the Covid-19 pandemic 2) Kerala will have to build new infrastructure for
in the animal resources sector in Kerala is the need to meat processing plants to cater to the northern,
attain a greater degree of self-sufficiency in handling Central and southern districts. It may be best to set
animal produce. The pandemic has also reminded up such plants in border districts to reduce costs of
Kerala that the State it is close to attaining self- transport of live animals across the State.
sufficiency in milk production. In the coming years, the 3) In piggery, where some extent of geographical
State needs to prepare itself for a handling a situation separation of production from residential areas
of surplus milk. Thus, Kerala needs a modern milk is deemed necessary, Kerala could think of using
powder plant as well as an evaporator plant to convert vacant areas in plantation land. Buildings and a
and store surplus milk as milk powder and condensed small area could be rented out, and the farms could
milk. Prior to the erection of such a facility, feasibility also provide organic manure for the plantation
studies should be carried out to ascertain the availability crops.
of excess milk throughout the year. 4) Information and training will have to be imparted
We also need to aim at developing the production to all the stakeholders in the value chain to support
of value added commodities from milk, such as cheese informed and business-oriented decision making,
and yogurt. This implies setting up of advanced product especially in the production and processing sectors.
diversification facilities in the existing dairy plants. Further, capacity building would be necessary
The quality of raw milk at farm-level is of great to expand skilled and technical manpower in
concern. This area needs attention. The cold chain slaughtering, processing and packaging of meat.
maintenance from farm to fork has to be ensured. The 5) Alongside, the State will also have to create an
milk procured at the farm-level has to be cooled in a integrated cold supply chain for retailing meat and
short span of time to reduce the bacterial load. This meat products.
needs more financial support to ensure cold chain 6) Value addition in meat and meat products through
maintenance. At present, there are only 442 Bulk Milk developing entrepreneurs for ready-to-eat and
Chilling Centres (BMCC) in the State, with a capacity semi-processed meat products in the domestic
of 17.7 lakh litre per day. This needs to be increased market is important. At present, only a small
to suit the milk procurement capacity of the dairy percentage of the meat produced is converted into
cooperatives. Where necessary, or cluster BMCCs with value added products. Most meat is purchased
linkages to a maximum of 5 to 6 dairy cooperatives have by consumers in the fresh or frozen form for
to be promoted. Assistance is needed for the installation conversion into products at homes or restaurants.
of around 150 BMCCs throughout the State with an The need for satellite processing units – centrally
average installed capacity of 2000 Litre Per Day (LPD). located slaughter houses and a number of associated
Promoting meat production and value addition centres or processing units – has to be planned for.
In order to develop the base of meat production in the 7) Kerala will also have to explore options for
State, a Meat Sector Strategic Plan (MSSP) should be converting inedible offal and animal wastes from
developed. The objective of MSSP should be to frame the meat plants into economically useful products.
an overall strategic plan for the meat sector in Kerala, There is huge potential for processing animal tissues
comprising production, processing and marketing of to produce valuable proteins/materials, which have
meat and meat products. This should include separate a global and domestic market.
50 | KERALA DEVELOPMENT REPORT 2021

8) Farmers and entrepreneurs in meat production to other States. That is, Kerala was producing more eggs
have to be ensured adequate amount of credit at than what was demanded within the State. However,
subsidised rates of interest. Kerala Bank and other today, the State imports approximately 2 crore eggs
primary cooperative societies should be requested per day from other States. It is estimated that about
to develop specific credit packages for meat Rs 800 to Rs 1000 crore is the amount of revenues
production. flowing to other States due to these imports. This
Quality issues in meat production situation has to be reversed. It is also estimated that an
The real potential of the meat sector in Kerala has not average of one million broiler birds per day are being
been fully tapped. The requirement of meat, especially slaughtered in Kerala to meet the domestic chicken
beef, in Kerala is met from animals brought for slaughter demand. But the broiler industry continues to be under
from outside Kerala, i.e., Andhra Pradesh, Karnataka and the clutches of large-scale producers headquartered in
Tamil Nadu. With only a handful of formal slaughter the neighbouring States. At present, only 0.1 per cent
houses in operation and a large percentage of informal of the broiler poultry market share is handled by the
slaughter being carried out illegally (around 60 per cent Government and public sector undertakings including
of the informal units are estimated to be unregistered), cooperative sector. This also needs redressal.
and without any veterinary inspection, the meat sold A key role in this regard will be played by the
to the public is largely unclean. It has also resulted in Kerala Chicken Project, introduced during the
large-scale pollution in the surrounding areas. Animals 13th Plan. In 2018-19, the Animal Husbandry
are slaughtered in unclean surroundings, by butchers department, along with Kudumbashree, Kerala State
with little expertise in hygienic meat production and Poultry Development Corporation (KSPDC), Meat
many times on roadsides. Meat stalls are also open stalls Products of India (MPI), KVASU and the Brahmagiri
where carcasses are hung in full view of the public in Development Society (BDS), proposed to implement
unhygienic settings. Waste and effluent management the Kerala Chicken Project. This project is envisaged
is practically non-existent. Biogas plants have been to cater to the present and future needs of production,
installed in a few units for waste management, but they quality assurance, processing and marketing of chicken
are dysfunctional due to lack of skilled supervision. following an efficient supply chain model. According to
The entire chain of operations leads to breach the mission statement of the project, it aims to “meet
of public health, with serious consequences for the domestic demand of poultry meat, by producing
animal welfare, food safety, occupational health, and safe chicken meat inside the State through healthy and
environmental hygiene. hygienic practices and selling at affordable price, and
For processed meat, the drivers of demand are thereby providing enterprise opportunities to farmers,
especially the women, and the consumers.” It envisages
hygiene, quality and food safety. However, significant
the establishment of broiler breeder farms in Kerala to
investment is required to achieve high standards. Rising
produce required broiler commercial chicks for farming
per capita consumption in domestic market and increase
at reasonable price, to give assistance to budding broiler
in global demand opened up new opportunities to meat
farmers, to create a fair and stable market price through
and poultry industry to adopt modern technologies in
a distress relief fund and to achieve 100 per cent market
production, preservation, processing, value addition
share in the broiler industry in a phased manner.
and consumer packaging. Currently, value addition in
In the 14th Plan period, the following issues will
meat sector is almost non-existent. For the meat sector
have to be addressed.
to be more vibrant, profitable and provider of safe meat,
• A special purpose vehicle will have to be created
it is necessary that a perceptible shift from unorganised
in the first year to enable resource mobilisation for
to organised sector takes place. This calls for a strategic
project.
plan to modernise the meat production sector towards
• Two big broiler breeder farms in every district will
the production of clean and wholesome meat based
have to be set up with the collaboration of private
on a Clean, Green and Ethical (CGE) farming and
entrepreneurship, local self Government (LSG)
production system.
support and Kudumbashree to produce quality
Promotion of poultry farming day-old chicks under strict quality control for
In the 1970s, Kerala was exporting eggs to other parts supply reasonable price.
of the country. Chengannur and Kottarakkara railway • About 150 hi-tech commercial broiler farms
stations were famous as centres of rail transport of eggs operated by farmers will be required throughout
 ANIMAL RESOURCES | 51

Kerala, again with the support of private One major issue faced by duck farmers is the
entrepreneurs, Kudumbashree, the Animal high-level of mortality due to the outbreak of duck
Husbandry Department, Kerala State Poultry pasteurellosis, duck plague and new duck diseases.
Development Corporation (KSPDC) and other Around 90 per cent of the ducks are reared without
stakeholders. any systematic or scientific feeding practices or disease
• Infrastructure facility will be required in every control measures. Ducks largely rely on spilled grains,
district namely, processing plants, cold chain grass hoppers, slugs, snails, small crabs, insects,
facilities for transportation, cold storages, marketing mosquitoes and other larvae and small fishes from the
outlets and sales channels such as supermarkets and harvested paddy fields, ponds, water ways and rivers.
own outlets by name “Kerala Chicken Shoppe”. The geographical peculiarities of Kuttanad invite a
• Kerala Chicken Food Processing Parks will have to large number of migratory birds, which in turn leads to
be established in at least 4 districts with common infections like Bird Flu or Avian Influenza among the
facilities and mother facilities. local duck population.
• Chicken rendering plants will have to be established Lack of knowledge about vaccination against these
in every district for scientific waste management diseases and scarcity of vaccination experts are some
and safeguard the environment. This will also cater of the other factors leading to high-levels of duck
to converting the waste to by-products like organic mortality. Kuttanad urgently needs a large project
manure, pet, fish foods, and feed ingredients. that would vaccinate most of the ducks within a strict
• About 1000 Kerala Chicken outlets with cold time frame. It also needs proper disease surveillance
chain facility will have to be established in the State programmes and vaccination of nomadic ducks to
for selling safe to eat chicken. prevent mass deaths. A cadre of field workers has to be
• A cold chain facility with about Rs 200 crore created for this purpose. We suggest that a major project
capital infusion will be required with packhouses, be allotted to the KVASU, Pookkode towards this
reefer vans and cold storages in the sales outlets. purpose for exclusive operation in the Kuttanad region.
This will require responsible investment from This project site should have infrastructural facilities
major cooperatives and private players under strict to provide and distribute 5 lakh day-old ducklings per
Government supervision. year. In addition, the project should create facilities for
• Quality assurance of meat for food safety will providing services like disease diagnosis, feed analysis,
have to be maintained through NABL or similar training to duck farmers, custom hatching facilities for
accredited private labs established within the radius duck farmers (aiming at about 15,000 eggs per week)
of 2 km of major production centres. and field veterinary services. It is estimated that for
Promotion of duck farming producing 5 lakh ducklings, 4000 parent stocks have
Some amount of planning has to go into how to to be reared, which needs around 12000 sq. feet shed
intensify duck farming in Kuttanad. The Kuttanad area. Additionally, area will be required for a hatchery,
ducks are the indigenous desi ducks of Kerala, which an experimental shed, a disease diagnosis and feed
include the Chara, Chemballi, Pulli and Black varieties. analysis laboratory, a waste treatment plant and a
Among these four varieties, Chara and Chemballi are training centre. The Kerala State Planning Board has
the two familiar varieties. They are hardy water fowls, already provided an initial allocation to the KVASU to
acclimatised to the geographical area and resistant to begin work on this project. We recommend that Kerala
many diseases. Even though Kuttanad ducks are dual Government should provide 10 acre of land to the
purpose in nature (i.e., reared for egg and meat), they KVASU in Kuttanad to establish the project site.
are reared in Kuttanad mainly for egg production. This Providing insurance cover to the duck population
is because even though consumers prefer Kuttanad is essential to minimise financial losses to the duck
duck meat for its tasty and nutritious meat, farmers do farmers in the aftermath of disease outbreaks. Generally,
not prefer to rear them exclusively for meat purpose insurance companies are not willing to take up duck and
due to their low body weight, meat is to bone ratio and poultry insurance. Government intervention should be
feed efficiency. Presently, exotic meat type duck breeds ensured in this regard so that insurance cover is ensured
like Vigova Super-M and White Pekin are reared for for both ducks and poultry.
meat purposes, but their major drawbacks are low egg Promotion of veterinary entrepreneurship
production, high costs of day-old ducklings and less Comprehensive entrepreneurship development
consumer preference for white feathered birds. programmes are required to tackle the critical
52 | KERALA DEVELOPMENT REPORT 2021

production and skill gaps in Kerala’s livestock sector. Each of the 44 rivers in the State has its source in
Entrepreneurship, innovation, skill development and a forest. There are around 1000 human settlements
capacity building have to emerge as potential areas of (tribal and non-tribal) and private estates in remote
focus in veterinary extension. Promotion of livestock, locations within forests. There are 484,839 tribal
dairy and poultry entrepreneurship programmes to help persons belonging to 36 tribal communities living in
returnee Non Resident Keralites (NRKs), unemployed 725 settlements; they constitute 1.5 per cent of the
youth and women established commercial livestock total population of the State.
ventures is extremely critical in a post-Covid era. The Administrative Context
Precision farming, farming based on agro-ecological The duties and responsibilities of Forest Department
zones and production of safe to eat products need include the protection of forests and wildlife, extraction
more attention. During the 13th Plan period, there of timber and other forest produce, management of
were plans to establish “start-up villages” in livestock Protected Areas (PAs), survey and demarcation of
production based on agro-ecological zones. This forest boundaries, soil and moisture conservation,
project envisaged integrating agriculture, livestock implementation of participatory forest management
and fisheries to produce safe to eat products with programmes, management of human-wildlife conflict,
less than permissible-level of pesticide and antibiotic implementation of programmes for nature and wildlife
residues. There was also a proposal to establish “agri- education, extension and interpretation, conservation of
smart villages” practising high-value dairy, poultry, goat biodiversity, research on biodiversity conservation and
production and piggery, involving the promotion of natural resource management, production of genetically
commercial ventures, high-tech farming, processing superior planting materials, tribal welfare activities,
and value addition, e-marketing and export-oriented development of forest management information
production. Both these ideas could not take off during system, conducting cases in the Courts and legal
the 13th Plan period. Such innovative ideas have to be support, managing issues related to captive elephants,
consciously promoted during the 14th Plan period. licensing of sawmills and wood-based industrial units,
Finally, a round-the-clock common resolution and improved intelligence gathering and investigations
centre, which works to solve problems faced by of cases with inter-State and international ramifications.
entrepreneurs, should be set up to cater to the The wildlife wing of the Forest Department manages
requirement of the primary sector. This should deal 3,213.2 sq. km of forests under the Protected Area
with questions of production, production support, and network, which includes five National Parks (NPs), 17
marketing as part of the Subhiksha Keralam project. Wildlife Sanctuaries (WLS), two Tiger Reserves (TRs),
This can be a central nodal point, called, for example, and one Community Reserve (Kadalundi-Vallikkunnu).
SK Suvidha, and operated by well-trained professionals. There are several High-Value Biodiversity Areas
Forest Governance: Initiatives and Priorities (HVBAs), such as New Amarambalam, Kulathupuzha,
Siruvani-Muthikulam, Goodrickal, Malayattor,
Introduction Camel's Hump Mountains, Chembra, Elambileri,
Proximity to the tropics, copious rainfall, relatively Aranamala, Kattimattam, Vellarimala, Vavulmala, and
high humidity, and fertile soil are among the factors Thirunelli. The list of Protected Area (PA) networks
responsible for the evolution of highly diverse forest and territorial forest divisions in Kerala are given in
ecological systems in Kerala. The total extent of forests Table 2.15 and Table 2.16 respectively.
in Kerala is 11,524.4 sq. km (29.9 per cent of the
geographical area), of which an extent of 9,339.2 square Challenges to forest management in Kerala
km is Reserved Forests, 284.2 sq. km is proposed reserve Over the past decades, forests in Kerala have been
and 1,900.9 sq. km is vested forests and ecologically subjected to large-scale human intervention. Extensive
fragile lands. These include tropical evergreen, semi- areas of forests have been converted to commercial tree
evergreen, moist-deciduous, dry-deciduous, shola plantations (such as teak and eucalyptus plantations),
grasslands, and mangrove forests. Of the total forest cash crops (such as cardamom, coffee, tea, rubber, and
area under the control of the Kerala Forest Department, pepper), and areas for cattle-ranching. Interventions such
natural forests form 78.4 per cent and plantations form as road construction, river-valley projects, urbanisation,
13.5 per cent; the remaining 8.2 per cent is under lease and mass tourism have also reduced the forest cover.
and forest land under the Forest (Conservation) Act, Poverty and economic backwardness among forest-
1980. dependent communities continue to exert pressure
 FOREST | 53

on forest resources. Besides, encroachment, wildfire, ravines, and reduction of overall water retention
proliferation of invasive species, poaching, mining, capacity. The poor and the disadvantaged, particularly
excessive firewood collection, non-compatible land-use, the tribal people living in forest enclosures, suffered
changes in cropping pattern, “honey-combing” because maximum losses during these floods. The Post-Disaster
of human habitations inside forest enclosures, and Needs Assessment (PDNA) report prepared by the
climate-induced ecosystem malfunctions have further Government identifies “heightened vulnerability” of
led to the degeneration, fragmentation, and loss of forest enclosures and calls for integrated and innovative
vital habitats. More recently, Kerala has also witnessed approaches for forested landscapes. The ability of forests
extreme and erratic weather events, destructive cycles to absorb the intense and incessant rains was significantly
of drought and flood, human-wildlife conflict, and reduced in forest enclosures and degraded forests due
diminishing livelihoods from forests. to the absence of stable multi-canopied vegetation that
The devastating floods that wreaked havoc in contributed to flash floods and landslides. Remote and
Kerala in August 2018 and August 2019 caused major far-flung settlements also suffer from the poor reach
damage to the social, economic, human, and ecological and penetration of rural development schemes, poor
infrastructure of forests. It impacted the forests through access to education and healthcare and markets, which
loss of vegetative cover, widespread landslides, washing creates precarity in their existence and recovery. To
away of humus and topsoil, formation of gullies and compound these, the forest enclosures also bear the

Table 2.15 List of Protected Areas in Kerala area in square km

Name of WLS/NPs Year of Total Area
formation (in sq.km)
Periyar WLS (Tiger Reserve) 1950 925.0
Neyyar WLS 1958 128.0
Peechi-Vazhani WLS 1958 125.0
Parambikulam WLS (Tiger Reserve) 1973 643.7
Wayanad WLS 1973 344.4
Idukki WLS 1976 70.0
Eravikulam NP 1978 97.0
Peppara WLS 1983 53.0
Thattekkad BS 1983 25.0
Silent Valley NP* 1984 237.5
Shendurney WLS 1984 171.0
Chinnar WLS 1984 90.4
Chimmony WLS 1984 85.0
Aralam WLS 1984 55.0
Anamudi Shola NP 2003 7.5
Mathikettan Shola NP 2003 12.8
Pambadum Shola NP 2003 1.3
Mangalavanam BS 2004 0.02
Kurinjimala Sanctuary 2006 32.0
Choolannur Pea Fowl Sanctuary 2007 3.4
Kadalundi-Vallikunnu CR 2007 1.5
Malabar WLS 2009 74.2
Kottiyoor WLS 2011 30.4
Total 3213.2
Note: BS-Bird Sanctuary; CR-Community Reserve; NP-National Park; WLS-Wildlife Sanctuary
Source: Department of Forests, Government of Kerala
54 | KERALA DEVELOPMENT REPORT 2021

brunt of human-wildlife conflict causing considerable Achievements during the 13th Five-Year Plan
hardships and unrest among people. The last five years have witnessed important changes
Forests and Water Security of Kerala made by the Government in existing practices of forest
The repeated floods of 2018 and 2019 were critical for and wildlife management. Policies of participatory
forests in Kerala. A closer analysis of the trail of events forest management have been implemented over the last
helps understand the problem of hydrological security. five years. Innovative ideas for afforestation and wildlife
Four factors affected the water situation of Kerala in conservation were implemented during this period.
this context. Along with forest conservation activities, the economic
and financial development of forest-dependent
Built-up area communities was a major objective of the Government.
Of the total geographical spread of 38,863 sq.km, Forest conservation and afforestation campaigns in the
the total built-up area (houses, buildings, roads, and State have shown results. The forest cover of the State
pavements) in Kerala comes to around 6,000 sq.km. has increased during the second consecutive assessment
These are surfaces made permanently impermeable for period as well, thereby enabling the State to occupy
water infiltration. It is only reasonable to presume that third position among States in terms of increase in
Kerala may end up having one-fourth of its total area forest cover, as per India State of Forest Report 2019.
permanently under tar, mortar, concrete, and tiles in As per the report, the total area under forests, including
the not-so-distant future. plantations is 21,144 sq. km which is 54.42 per cent
Reservoirs of the geographical area of the State. There has been
Most of the 90 odd reservoirs in the State face acute an increase in forest cover in Kerala by 823 sq. km, an
problems of siltation. The conventionally assumed role increase of 2.12 per cent, as compared to the previous
of reservoirs as water impounding structures during assessment in 2017.
times of excess rains and providers of sustained water Natural forests are essential for maintaining the
during drought has significantly reduced over the years. balance of the ecosystem. A policy decision was taken
to convert the existing plantations into natural forests,
Wetlands
except where necessary. As part of this, 7211.41
The swamps, wetlands, and paddy fields of Kerala used
ha eucalyptus, 7342.862 ha acacia, 2842.945 ha
to be major storage areas of water. However, these have
manchiyam are to be converted to natural forests in
dwindled and have almost irretrievably been lost over
a phased manner. The Government also envisages the
the last four decades.
conversion of low productivity teak plantations into
Forest ecosystems natural forests. As part of natural forest management,
All river systems in Kerala have their sources in forests. major activities taken up were survey of forest
Forests perform two vital functions: they intercept high boundaries, forest protection, and regeneration of
intensity rainfall and facilitate deep percolation and denuded forests. Boundary demarcation was done by
retention of water. This has an important bearing on construction of cairns and kayyala along the boundary
the cycle of flood and drought. It is estimated that the of the forests. During the past four years, 53,635
current ability of forests to perform their hydrological cairns (junda) were constructed as part of boundary
function is only about 30-40 per cent of what may have consolidation.
been possible if forests were green, healthy and intact. Kerala Forest Department has launched “Project
Fragmentation and degradation are the reasons for this. Green Grass” in the State in a move to keep our
Factors that cause degradation and fragmentation of forests clean. The project aims to clear the solid waste
Kerala’s forests, inter alia, include uncontrolled forest from forest areas (by involving Vana Samrakshana
fires, grazing, encroachment, monoculture plantations Samiti, Eco Development Committee, and voluntary
and linear intrusions like roads and canals. organisations), create awareness among the tourists,
Among these four factors, major interventions and impose spot fining and other legal measures, adopt
course-corrections may not be possible in the case of the technology to monitor waste dumping and so on.
first three. However, the fourth factor – forests – offer 125 waste dumping spots were identified and cleaned.
the best possible option for improving water security. Since Munnar Forest Division faces a major issue of
The objective should be to improve the hydrological waste dumping, a separate plan was developed for the
functionality of the forests from the current 30-40 per region, thereby removing 1808 tonnes of waste from
cent to 60-70 per cent. that area alone. Water sources and rivers inside the
 FOREST | 55

Table 2.16 List of territorial Forest Divisions in Kerala with extent area in sq.km
Sl.No Forest Division (FD) Reserve Forests Proposed Vested Forest Total
(RF) Reserve (VF)+EFL
Southern Circle, Kollam
1 Thiruvananthapuram 359.124 5.8253 3.651 368.6003
2 Thenmala 123.432 - 7.735 131.167
3 Achencoil 284.3298 - 0.2082 284.538
4 Ranni 1050.336 7.16 1.568 1,059.06
5 Punalur 280.051 - 0.169 280.22
6 Konni 320.643 11.021 - 331.664
Total 2417.9158 24.0063 13.3312 2455.253
High Range Circle, Kottayam
7 Kothamangalam 316.8451 - 0.1576 317.0027
8 Munnar 440.49 175.275 2.45 618.215
9 Marayoor 13.972 47.26 0.076 61.308
10 Mankulam 90.06 - - 90.06
11 Kottayam 627.287 - 31.967 659.254
Total 1488.6541 222.535 34.6506 1745.84
Central Circle, Thrissur
12 Vazhachal 413.944 - - 413.944
13 Chalakudy 279.7098 - - 279.7098
14 Malayattoor 617.2411 0.5248 - 617.7659
15 Thrissur 293.743 - 4.3137 298.0567
Total 1,604.64 0.5248 4.3137 1609.476
Eastern Circle, Palakkad
16 Mannarkkad 150.7322 - 271.7213 422.4535
17 Nilambur North 57.9196 0.0171 340.7032 398.6399
18 Nilambur South 267.3894 - 57.8888 325.2782
19 Palakkad 73.41 - 162.0847 235.4947
20 Nenmara 205.517 - 150.2104 355.7274
  Total 754.9682 0.0171 982.6084 1737.594
Northern Circle, Kannur
21 Kozhikode 24.3998 22.966 243.0856 290.4514
22 Wayanad North 134.024 15.064 65.8527 214.9407
23 Wayanad South 66.1381 6.8449 274.681 347.664
24 Kannur 121.3702 0 65.2014 186.5716
25 Kasaragod 86.0221 0 33.7083 119.7304
  Total 431.9542 44.9643 682.529 1159.358
Grand Total 6698.1302 292.0475 1717.4329 8707.521
Source: Department of Forests, Government of Kerala

forests were decontaminated as part of the Haritha forests during the period, thereby ensuring drinking
Keralam Mission. Around 169 ponds were cleaned and water availability to wild animals inside forests.
hundreds of water sources were revived. Three hundred Kerala’s Thiruvananthapuram landscape is
and fifty check dams were newly constructed inside the one among the three areas in India identified for
56 | KERALA DEVELOPMENT REPORT 2021

implementing the project “Forest Plus 2.0” by the funded by a State Government for relocating the people
Ministry of Environment, Forest, and Climate Change. from the non-protected forest areas. Compensation
This project, started in 2018 with the technical support amount given to the victims of human animal conflict
of United States Agency for International Development was hiked and online facilities were implemented for
(USAID), aims at developing tools and techniques to speedy disposal of compensation.
strengthen ecosystem-based management by including During the Covid-19 pandemic induced lockdown,
ecosystem services in forest landscape management, and Kerala Forest Department had an online initiative
to bring in a larger area under improved management to support tribal livelihood. Thiruvananthapuram
and improve the livelihood of forest dependent Wildlife Division took the lead to develop an online
communities. As part of this project, the supply chain platform to ensure market access of non-wood forest
analysis of major non-timber forest produce and produces (kasthoorimanjal, honey, handicrafts/bamboo
ecotourism activities in the forest fringe villages of products) and agricultural produces (tapioca, long
Thiruvananthapuram Forest Division is in progress. beans, yam, plantain) from tribal hamlets in all the
Among the measures taken to mitigate the three forest ranges namely, Agasthyavanam Biological
increasing problem of human-animal conflict along Park (A. B. P), Neyyar, and Peppara under the division.
the forest fringes are the construction of physical The forest produce procured directly from tribal
barriers like solar fencing, digging of elephant-proof hamlets at market rates were delivered at the doorstep
trenches, construction of elephant-proof walls, and of prospective consumers on first come first serve basis
crash guard rope-fencing along the forest boundary. from different parts of the city through the WhatsApp
The following measures have also been undertaken: group VANIKA. The greatest advantage of such a
construction of check dams, maintenance of vayal timely intervention by Kerala Forest Department is
and ponds in forest area to ensure the availability of that the people living inside forest areas who would
sufficient water, planting fodder species inside forests have otherwise lost their products (all of them being
to ensure food for wild animals, voluntary relocation of perishable) could find a market and the tribal people
tribes from settlements, and awareness creation among who were getting their regular income earlier through
the farmers to abstain from cultivating palatable crop these products were not deprived of these during the
along the forest fringes. Over the past four years, 204 lock down period.
Jana Jagratha Samithis have been formed in the State. New initiatives by the Department include (1) the
For better coordination mechanism, SMS alert systems work of setting up a world class Elephant Rehabilitation
were implemented in 65 forest fringe areas with control Centre at Kottoor using KIIFB assistance of Rs 105
rooms in five locations. To send back the wild animals crore, which is in progress. Having completed the first
coming outside the forest. 12 bore pump action gun phase, the Chief Minister of Kerala did the inauguration
was made available to the Department. “Crash Guard on February 16, 2021 (2) The existing Thrissur zoo
Steel Rope Fencing,” the first of its kind in the country, is to be shifted to another site where sufficient space
was adopted by the Department to reduce human- is available for rehabilitating the animals. Works
wildlife conflict. In this innovative model, flexible steel amounting to Rs 309.75 crore is in progress. By 2021,
ropes are used. The ends of the rope are anchored on the new zoo will be made operational after completing
heavy concrete block so that the whole component will the relocation. Inauguration of first phase was done on
act as a single unit and the animals will find it difficult February 13, 2021 by the Chief Minister (3) “Budha
to push down. As a pilot project, “Crash Guard Steel Mayoori” is proclaimed as the official butterfly of Kerala
Rope Fencing” was installed for a length of 1.3 km in State, thereby being the fourth State in the country to
Mankulam Forest Division. Various activities initiated have a State Butterfly (4) Karimpuzha Sanctuary, in
under KIIFB to combat human-animal conflict are Malappuram, with an area of 227.97 sq.km, has been
in final stages. The activities under Phase I include declared as the new wildlife sanctuary in Kerala (5)
solar power fencing (101.5 km), elephant-proof wall Assistance received under Rebuild Kerala Development
(0.41km), and rail fencing (16 km) and those under Programme for Rs 800 crore for voluntary relocation of
Phase 2 are solar power fencing (136.7 km), elephant private settlements from forests, acquisition of private
proof wall (0.3 km), and crash guard steel rope fencing estates within forests, and consolidation of mangroves.
(48 km). Apart from this, voluntary relocation of 483 Looking to the future
families are also undertaken under KIIFB, the first of its Scientific evidence and knowledge show that the long-
kind in the country, wherein such a relocation is being term ecological security of Kerala lies in securing and
 FOREST | 57

safeguarding its forests and other natural resources. The Securing identified elephant corridors. The Ministry
legitimate livelihood and development aspirations of of Environment, Forests, and Climate Change with
the people need concurrently to be addressed. In other support from the Wildlife Trust of India, New Delhi
words, Kerala requires a governance approach in forest- has identified seven critical elephant corridors in
dominated landscapes that does not compromise the Kerala. Of these seven, one corridor (Thirunelli–
ecological functions of forest resources while addressing Kudrakote corridor) has already been completely
the developmental and livelihood requirements of secured. Two other corridors (Nilambur Kovilakam-
people. In furtherance of this, the following approaches New Amarambalam and Mudumala–Nilambur via O’
are proposed: Valley or Ouchterlony Valley) do not need any land
1) Relocation of private settlements located inside the acquisition. The acquisition of Kottiyur-Periya corridor
forests – i.e., 66.3 ha – is in progress. This leaves us with three
2) Acquisition of private estates located inside the remaining corridors that need to be consolidated:
forests (a) Begur–Brahmagiri, 247.8 ha; (b) Nilambur–
3) Securing identified elephant corridors Appankappu, 23.3 ha; and (c) Periyla at Pakranthalam,
4) Consolidation of forest boundaries through survey 13.46 ha. Apart from significantly reducing the issues
and demarcation of human-wildlife conflict, this approach shall also
5) Resumption of unused forests areas given on lease consolidate some of the most disaster-prone areas of the
6) Swapping the habitations of forest-dwelling State (in Wayanad and Nilambur) under forest cover.
communities as a strategy to address human-wildlife Consolidation of forest boundaries through survey
conflict, disaster-risk reduction and improving and demarcation. Considering the importance of
access to livelihoods and welfare measures consolidating the remaining forests tracts, intensive
7) Rationalisation of boundaries of Protected Areas efforts need to be made to get the forest lands surveyed
(PAs) and demarcated. Apart from the ecological and
8) Consolidation of mangrove forests enforcement-related reasons, demarcation of forest
9) Restoration of industrial plantations to natural boundaries is highly essential for settling the legal
forests disputes relating to forest boundaries. It is estimated
10) Rationalising teak plantations that the total length of boundary of forests in Kerala is
11) Unlocking the potential of NTFP-based forest 16,845.8 km of which 5,291.1 km is natural boundary.
livelihoods That is, the total length of forests that require
12) Effective implementation of the Forest Rights demarcation is 11,554.7 km of which 9,541.8 km has
Act, 2006 already been demarcated. The remaining 2,012.7 km
13) Addressing human-wildlife conflict boundary of forests of Kerala needs consolidation and
14) Moving towards the landscape management
permanent demarcation.
Relocation of private settlements. This concerns
Resumption of unused forests areas given on lease.
relocating private settlements (non-tribal) located
Around 55,711.1 ha of forest lands have been given
inside the forests by paying suitable compensation. Prior
on lease to public sector units in the past for various
informed consent and written willingness shall be the
purposes including cultivation. Plantations of cash
basis for this voluntary relocation. It is estimated that
crops such as rubber, cardamom, coffee, and tea as
around 2000 ha of forest enclosures can be converted to
well as agricultural crops exist in such leased out areas.
natural forests through this process. There are extensive areas within these leased out tracts
Acquisition of private estates. Private estates inside that are unused and still maintain the characteristics of
the forests were established by clearing dense natural original forest formations. Such unused forest areas can
forests, mostly located on steep slopes of forested be resumed by the Forest Department for conservation
mountains. Restoring them back to natural forests and management.
shall significantly reduce the likelihood of calamities Swapping the habitations of forest-dwelling
like landslides apart from improving the hydrological communities as a strategy for mitigating human-
functions of the forests. Restoration of these estates wildlife conflict, disaster-risk reduction, and
is also expected to reduce the incidences of human- improving access to livelihood and welfare
wildlife conflict. It is estimated that around 3000 ha measures. Around 1.5 per cent of the State’s population
can be restored to natural forests through this process. comprise people of the Scheduled Tribes who live in
58 | KERALA DEVELOPMENT REPORT 2021

and around the forests in 725 settlements. In most of storm surges and coastal erosion. They are also the
these settlements, people want improved infrastructure. major breeding grounds of marine fishery stock and
The demand for bringing development to such far- hence play a key role in many regional economies. In
flung and remote areas means further disturbance to the beginning of the twentieth century, Kerala had
forests and escalating cost. However, the legitimate extensive areas under mangroves (100 sq.km), now
livelihood and development aspirations of the people reduced to just 21.1 sq.km across 10 districts. So far, the
also need to be addressed. Human-wildlife conflict and Government has accorded legal protection for only 4.4
vulnerability to natural disasters induced by climate sq. km of mangroves. The ownership of the remaining
variability have also become serious problems in many mangroves is with the Revenue and other departments,
tribal settlements located inside forests. In some places, panchayats and private individuals. These areas need to
tribal communities themselves have started demanding be protected. That is, there is a need to accord legal
rehabilitation from interior forests to more suitable protection to the remaining 16.7 sq.km of mangroves.
areas inside the forests that are more accessible and less While mangrove forests with the Revenue Department,
prone to human-wildlife conflict and natural disasters. panchayats and other Government agencies can be
Hence, as a strategy, it may be prudent to swap the notified under the Kerala (Forest) Act, 1961, mangroves
location of such far-flung tribal settlements from the with private individuals will need to be acquired and
interior forests to other suitable areas (in the same eco- notified as Reserve Forests. Further, mangrove-based
cultural settings) within the forests that shall be more rural livelihoods and income generating activities must
permanent, ecologically benign, and imply a value- be initiated.
for-money proposition. However, swapping of tribal Restoration of industrial plantations to natural
settlements from interior to other suitable forest areas forests. In the second half of the nineteenth century,
must be planned with extreme sensitivity and must be with the formation of the colonial forest bureaucracy,
based on the informed consent of the communities.
the forests of Kerala were brought under organised
Rehabilitation processes that include swapping forest
management. Extraction of timber and accommodating
areas may also require the prior approval of the Central
the aspirations of expanding agriculture were the
Government under the provisions of the Forest
priorities of forest management till independence.
(Conservation) Act, 1980, the Wildlife (Protection)
Supplying raw materials to forest-based industries
Act, 1972, and the Forest Rights Act, 2006.
became the central tenet of forest management in the
Rationalisation of boundaries of Protected Areas post-independent era with the enactment of the second
(PAs). Though many Protected Areas in the State National Forest Policy, 1952 and the formation of the
have performed impressively in preserving species Kerala State in 1956. Reeds and bamboos became main
diversity at the individual-level, their management raw materials sourced from the forests for pulp, rayon
effectiveness remains critically sub-optimal at the and mat-weaving industries. Later, acacia, eucalyptus,
landscape-level because of (a) the relatively small size alnus and tropical pines were introduced as fast-growing
of most PAs; (b) incomplete representation of flora and species to supplement the raw material requirements of
fauna; (c) connectivity issues (as in the Idukki Wildlife industry. Acacia mearnsii (black wattle) was also added
Sanctuary); and (d) prevailing and emerging threats to the list as a raw material for the tanning industry.
(including climate variability). In the current situation, These were times of early nation building and
the existing PAs, already small and under considerable industrial development. It was no wonder then that
stress from various factors, will lose their functional considerations of industrial growth took precedence
effectiveness with disastrous consequences for the over ecological security. In retrospect, however, these
ecological and hydrological integrity of the State . monoculture industrial plantations adversely affected
Hence, through a technically robust and socially forests and forest resources. Some of these plantations
conscious process, the boundaries of the existing PAs were established in highly ecologically sensitive areas
must be rationalised with an aim to cover more high- such as high-altitude grasslands. Species like black wattle
value biodiversity areas in the PA network. Public had also become invasive in high-altitude ecosystems.
discussions are important in this regard. The Forest Policy of 1988 shifted the priorities
Consolidation of mangroves. Mangrove forests are from the promotion of industrial plantations to
vital coastal ecosystems dotting the seascape-landscape biodiversity conservation as the dominant theme of
interface, and they form a first barrier against rising forest management. More recently, the fury of climate
 FOREST | 59

variability-induced natural disasters, particularly areas also need to be restored to natural forests. It is
recurring floods, have put additional responsibilities estimated that around 50,000 ha of existing teak
on forest management including in improving the plantations will need to be reverted to natural forests
hydrological services apart from conserving biological based on the above decision and require eco-restoration.
diversity. Through the above approaches that pivot largely
Currently, Kerala has around 27,000 ha under around the eco-restoration of disturbed/degraded
industrial plantations (acacia, eucalyptus, tropical pines forests, it is presumed that the hydrological functionality
and alnus). In view of diminishing requirement from of forests can be improved manifold at a minimum cost.
the industries and considering the need for managing Unlocking the potential of NTFP-based forest
the forests as a bulwark against climate variabilities and livelihoods. One of the main objectives of forest
for improving the water security, the Government of governance is to provide people with means of livelihood
Kerala has taken a policy decision that the remaining based on sustainable resource use. This shall prevent
industrial plantations (eucalyptus, acacia, wattle and overexploitation of forests that would have otherwise
pine) be phased out by 2024 and restored to natural been subjected to over-dependence, degradation
forests. Most of these areas are already abandoned, in a and eventual biodiversity loss. Forests provide a large
highly degraded condition and overgrown with exotic quantity of non-timber forest products (NTFPs)
invasive species. Considering that such a move would and approximately 27 per cent of India’s population,
substantially improve the water retention capacity particularly tribal communities, is dependent on
of forests, these degraded and abandoned industrial NTFPs for their sustenance and livelihoods. Non-
plantations are proposed to be restored back to natural timber forest products are estimated to contribute up
forests. An estimated 27,000 ha of industrial plantations to 60 per cent of household income in some of the
can be restored to natural forests through this process. poorest rural villages. Non-timber forest products
Rationalisation of teak plantations. Since the 1840s, generate employment, substantial income and enable
large tracts of natural forests of Kerala were converted to rural communities to offset multiple vulnerabilities.
pure teak plantations. Thus teak, the “jewel of oriental Developing an efficient and operative NTFP
forests,” became the premier species of plantation management strategy is now an imperative of forest
forestry in Kerala. As of now, Kerala has 90,978.1 ha governance, as NTFPs form the core of activities
of forest land under teak plantations. This accounts for under the Forest Rights Act, 2006. There is also a
about 59 per cent of the total area under plantations need for synchronising the Forest Rights Act and
with the Forest Department and 8 per cent of total the Participatory Forest Management programmes.
forest area in the State. Notwithstanding the enormous economic, social and
For some time, there have been certain concerns ecological significance, there are several critical issues
regarding the performance and long-term prospects affecting the NTFP sector in Kerala. The distribution,
of the teak plantations. Declining productivity quantum and scale of NTFPs available in our forests
(particularly in second- and third-generation and the pattern of resource use are inadequately known.
plantations), poor management of younger plantations Further, the markets for NTFPs are poorly studied
and issues related to delayed silvicultural practices were and remain largely opaque. The rights of collectors
some of them. The propriety of retaining the poorly are tenuous and access regulations are unclear in the
managed teak plantations in the context of climate absence of incomplete declaration of Community
variabilities, invasive species and flood and drought Forest Rights (CFRs). Often, the collection practices are
incidences are also being pointed out. It is further not sustainable and value addition is weak. Moreover,
noted that most of the teak timber reaching the markets primary collectors get only a small portion of the overall
are now sourced from private holdings and the share of value of the produce.
forest plantations are marginal. Overall, there are many gaps in our current
In this context, it has now been decided that teak understanding of the range of NTFPs collected from
plantations in poor or degraded sites and without any the forests, their classification, socio-economic values,
potential for development into successful plantations technical packages, trade, market mechanisms and
shall be restored to natural forests. Similarly, areas falling policy and legal contexts for their sustainable use.
in disaster-prone areas (above 30 degree slope), wildlife This calls for a game-changing strategy. An increase
corridors, riverine areas and high-value biodiversity in the share of the value of NTFPs accruing to the
60 | KERALA DEVELOPMENT REPORT 2021

marginalised communities will have a strong impact on Moving towards landscape management. The forests
poverty as well as the stability of democratic governance perform multiple roles in Kerala that are reflected in
in some of the backward areas of the State. Interventions the land-use in the forested landscape. Considerations
aimed at greater transparency in the commercial value of production forestry (timber, pulpwood), protection
of NTFPs and more equitable sharing of revenue shall of wildlife (Protected Areas), catchment protection of
incentivise the forest-dependent communities as well as river-valley projects, biodiversity conservation, NTFP
the Forest Department to conserve biological diversity. management, tribal livelihoods, housing human
In sum, there is need for a structured approach for enclosures and tourism, locations of agriculture and
NTFP management from the forests of Kerala. plantations and infrastructure and sources of river
Effective implementation of the Forest Rights systems are major land-uses in the forested landscapes.
Act, 2006. The Forest Rights Act provides for This framework of forest governance is a product of the
recognition and vesting of forest related rights to the policies and priorities of the forestry sector as demanded
Scheduled Tribes and other traditional forest-dwelling by society and the economy from time to time.
communities. The various rights that can be provided/ For instance, colonial considerations were the
claimed are individual, developmental and community original driving force behind the establishment of
forest rights. the Forest Department. Its present organisational
The Kerala Forest Department’s Participatory arrangement as Circles, Divisions and Ranges were
Forest Management (PFM) guidelines lay down ways made when timber extraction and establishment of teak
to create spaces for conservation through people’s plantations were the major objectives of management.
participation. Through PFM, the tribal communities Large-scale clearing of natural forests for agricultural
have been empowered to implement certain activities expansion took place during this period (i.e., the second
in forest areas, which aids in better management and half of the nineteenth century and the first half of the
conservation of forests. This also helps create a rapport twentieth century). In the post-independent era, in
between Forest Department and tribal communities and tune with the provisions of the second National Forest
helps in providing appropriate livelihood opportunities Policy of 1952, extensive monoculture plantations of
for the tribal population. acacia and eucalyptus were raised by clearing natural
The Forest Rights Act enacted in 2006 goes one forests for producing raw materials for industries. Large
step ahead and confers formal rights to tribes and other tracts of forestland were also leased out for commercial
forest-dwelling communities over forest land and its horticulture and tree plantations or diverted for various
resources. It recognises the tribal communities’ rights infrastructure development projects. Formulation of
over the forests they use/protect and enables them to Project Tiger and enactment of the Wildlife (Protection)
use their own traditional knowledge and practices for Act, 1972 saw the genesis of wildlife conservation
managing the same. However, rights under the Forest (Protected Areas) in areas rich in wildlife.
Rights Act also come with duties and responsibilities. The social forestry programme, an externally aided
This provides a space for converging the PFM and FRA project to promote tree planting outside forest areas,
in a win-win situation. was started in the early 1980s. Participatory forest
Dealing with human-wildlife conflict. There are management was initiated in 1990s to enlist the support
increasing reports of human-wildlife conflict from of forest-fringe communities in forest conservation by
many parts of the State. Elephant, tiger, leopards and addressing their livelihood requirements. Concerns
wild boar are the main animals involved in the conflict of climate change and rights of tribal communities
situations. Incidences of lives lost, crops and property were other considerations that became important in
damaged and retaliatory killings are on the rise. Loss the first decade of the twenty first century. Of late,
of habitats, increasing population of wildlife, climate hydrological functions have become the cornerstone of
change and changing cropping patters immediately forest management. Paradoxically, even though forests
surrounding the forests are the reasons attributed are currently viewed as having multiple purposes, they
for this. Notwithstanding the efforts to address the are administered based on a highly compartmentalised
situation through various means, it remains a major framework.
issue in the State. More cost-effective measures must be A hydrological framework for forest governance
developed for addressing human-wildlife conflict with calls for a “ridge-to-valley” approach where watersheds
the involvement of local people. of major rivers become the focus of management
 FOREST | 61

planning and action. All the interventions in a approach based on landscape-level considerations. In
landscape (comprising several watersheds) from the other words, all the land-uses within a landscape need
source of a river till it joins the sea must be synchronised to be synchronised and there must be concerted efforts
with respect to planning and implementation. For to incorporate conservation-friendly practices in all
instance, protecting a key water-source from all sorts land-uses operating in the landscape. The integrated
of disturbances (production felling, tourism or fire) is management of all inter-connected land-uses in a
an imperative irrespective of whether it falls in forest or landscape is going to be an important strategy (with
non-forest areas. This calls for an integrated governance impetus on urban forestry, climate change mitigation
and hydrology) of forest governance in the future.

Appendix Table 2.1 Progress of construction of new warehouses under the Kerala State Warehousing
Corporation (KSWC) as on October 13, 2020 in Rs crore
Name of Project Sanctioned Expenditure Progress of Work
amount incurred
(crore) (crore)
Construction of 1 0.67 Work completed and warehouse is ready for
warehouse at State inauguration
Warehouse, North
Paravur, Ernakulam
funded by NABARD
Construction of 7.5 0.027 Soil testing conducted; total station survey
warehouse at the conducted; MoU signed between KSWC and
State Warehouse, Kerala State Nirmithi Kendra for consultancy;
Muthalamada, Palakkad structural design to be obtained and to be
finalised; e-tender to be invited on getting
technical sanction.
Construction of 3.25 0.048 Soil test conducted; total survey station
warehouse at State conducted; building permit obtained; MoU
Warehouse, Punalur, signed between KSWC and Kerala State
Kollam Nirmithi Kendra for consultancy; exchange
of 3.11 cents of land with the adjacent plot to
avoid demolishing of existing godown yet to
be obtained from the Government.
Construction of new 1.8 0.007 Building permit obtained; MoU signed
warehouse at the State between KSWC and Kerala State Nirmithi
Warehouse, Mavelikkara, Kendra for consultancy; in progress
Alappuzha
Construction of new 3.63 0.025 Soil test conducted; total station survey
warehouse at State conducted; Fire NOC obtained; MoU signed
Warehouse, Haripad, between KSWC and Kerala State Nirmithi
Alappuzha Kendra for consultancy; in progress; work
tendered.
Construction of 2.4 0.006 Soil test conducted; total station survey
new warehouse at conducted; Fire NOC obtained; MoU signed
Sasthamkotta, Kollam between KSWC and Kerala State Nirmithi
Kendra for consultancy; in progress
62 | KERALA DEVELOPMENT REPORT 2021

Construction of new 1.67 0.014 Soil test conducted; total station survey
warehouse at State conducted; Fire NOC obtained; MoU signed
Warehouse, Thalassery, between KSWC and Kerala State Nirmithi
Kannur Kendra for consultancy; sanction also obtained
from Coastal Regulation Authority; work
e-tendered; in progress.
Construction of 3.8 (from 0.024 Soil test conducted; total station survey
warehouse-cum- NABARD) conducted; Fire NOC obtained; MoU signed
agri complex at between KSWC and Kerala State Nirmithi
State Warehouse, 0.3 (from Kendra for consultancy; sanction also obtained
Kozhinjampara, Palakkad Plan funds) from Coastal Regulation Authority; work will
begin soon.
Note: NOC stands for no objection certificate; KSWC stands for Kerala State Warehousing Corporation; MoU stands
for memorandum of understanding.
Source: Kerala State Warehousing Corporation
 Chapter 3
Food Security and Public Distribution in Kerala
Kerala has one of the most effective and best-run all-India coverage of 75 per cent and 50 per cent in the
public distribution systems in India. Prior to the 1997 rural and urban areas, State-wise coverage under NFSA
introduction of the targeted system, Kerala was the only was determined by the erstwhile Planning Commission
State in India that had an almost total coverage of the (now NITI Aayog) by using the National Sample
population by the Public Distribution System (PDS). Survey (NSS) Household Consumption Survey data
There are 87.9 lakh ration cardholders in the State. A for 2011-12. Kerala has got coverage of 52.63 per cent
summary of PDS in Kerala is given in Table 3.1. in rural area and 39.50 in urban area.
Major Policy Transformation Beneficiary identification
The present Government has taken major steps towards The Government of Kerala took measures to identify
policy transformation. The following are the key policy eligible households. In Kerala, the process of renewal
transformations implemented in the past four years. of existing ration cards coincided with the statutory
Implementation of National Food Security Act provisions of the NFSA. As mandated in the NFSA,
(NFSA), 2013 “priority” and “non-priority” ration cards have replaced
The National Food Security Act 2013 was introduced the Below Poverty Line (BPL) and Above Poverty Line
by the Government of India to ensure food security for (APL) cards, respectively. A State-wise ranking of the
the vast majority of the population belonging to the beneficiaries was also conducted. Kerala has successfully
middle and lower classes of the society. The objective implemented NFSA 2013 as per the norms suggested
of the Act is “to provide food and nutritional security by Government of India.
in human life cycle approach by ensuring access to Supply chain management
adequate quantity of quality food at affordable prices Supply chain management and doorstep delivery of
to people.” Under the NFSA, the State Government food grains (from intermediary State-owned godowns
is responsible for implementation and monitoring the up to the doorstep of authorised ration dealer (ARD))
schemes of various ministries and departments of the has now been entrusted to Supplyco, which has been
Central Government in accordance with the guidelines appointed by the Government to be the authorised
issued by the latter for ensuring food security to targeted agency and system integrator for this purpose.
beneficiaries in the State. In pursuance of the National Supplyco has established taluk-level intermediary
Food Security Act 2013, Government of Kerala has storage godowns and an e-tender has been floated for
decided to implement NFSA in the State with effect the selection of transporting contractors for lifting and
from November 1, 2016. doorstep delivery of food grains. GPS tracking of the
NFSA covers up to 75 per cent of the rural population transportation vehicles is still under way. As the first
and 50 per cent of the urban population under phase, all these were implemented in Kollam district,
Antyodaya Anna Yojana (AAY) and priority households after which a rollout throughout the State followed.
(PHH). While AAY households, which constitute the Automation of fair price shops
poorest of the poor, are entitled to 35 kg of food grains Fair Price Shops (FPS) have been automated through
per family per month, priority households are entitled the implementation of electronic point of sale (ePoS)
to five kg per person per month. Corresponding to the devices. Ration distribution happens through a

Table 3.1 Public Distribution System in Kerala at a glance

Number of districts 14
Number of taluks 81
Number of interim godowns 107
Number of authorised ration dealers 14,297
Number of ration cards 87.9 lakh
Number of Anthyodaya Anna Yojana (AAY) cards 5.57 lakh
Number of Priority Household (PHH) cards 31.64 lakh
Total National Food Security Act (NFSA) cards 37.21 lakh
Tide-over cards 50.69 lakh
64 | KERALA DEVELOPMENT REPORT 2021

beneficiary’s Aadhaar authentication, and food grain of Kerala has agreed to a final package based on
accounting happens on a real time basis on a central the Committee’s recommendations subject to the
system with transaction details available in the public condition that the ePoS will be implemented before a
domain. Aadhaar authentication ensures that genuine new commission structure is implemented. A revised
beneficiaries are availing food grains from FPS. Kerala commission structure will boost the morale of FPS
has good internet connectivity in both urban and rural licensees to improve service delivery to the beneficiaries.
areas. This also helped to achieve a higher percentage Standardisation of FPS
of successful Aadhaar authenticated transactions than FPS has been standardised by putting the same colour
elsewhere. Table 3.2 shows the percentage of Aadhaar code and it is also mandated to put the stock and price
authentication. list of commodities outside the FPS. Directions have
Table 3.2 Details of electronic point of sale been also given to FPS licensees to update the stock and
transactions and Aadhaar authentication, by month price accordingly.
and year in number and per cent The following are the major milestones achieved
Month and Total no. of Aadhaar during the process of PDS transformation.
year cards in the authentication Doorstep delivery operations
State (per cent) Supplyco has been entrusted with the implementation
March 2018 7,002,895 81.55 of the doorstep delivery of rationed articles under the
March 2019 8,412,615 97.63 PDS in Kerala. The food grain allocated to the State,
either through Food Corporation of India (FCI) or
March 2020 8,714,294 38.17
from Compact Multi-Roller (CMR) mills have to be
July 2020 8,792,169 95.25 lifted from the respective godowns and delivered at the
Grievances redressal system doorstep of the Fair Price Shops (FPS) after storage
The Department has developed an online grievance at interim godowns. At present the Corporation has
redressal mechanism to register and track grievances. started NFSA intermediary godowns in all 75 taluks
A call centre and toll free helpline numbers (1967 in the State for storage of food grain lifted from FCI
and 1800-425-1550) for Targeted Public Distribution depots/CMR Mills. The Corporation has also hired
System (TPDS) have already been working with 223 godowns with 15 lakh sq. feet area, which can store
Kerala State IT Mission (KSITM). Grievances can be about 2.5 lakh MT of food grains. Because of switching
registered through the email-id: [email protected]. over to NFSA operations, the operations in the existing
The National Informatics Centre (NIC) has customised 11 sub-depots have been converted to NFSA godowns.
a grievance redressal (GR) application newly prepared Successful implementation of ePoS across Kerala
for Local Self Government Department (LSGD), for Electronic point of sale (ePoS) has been implemented
the use of the Department internally, as specified in across Kerala in a time-bound manner. Training has
NFSA 2013. also been imparted to FPS licensee and department
Transparency portal officials on the operations of ePoS devices. User
The existing website of the Department (www. manuals have been prepared and distributed to all FPS
supplycokerala.gov.in) has been developed into a licensees. The Government has taken FPS licensees into
transparency portal by NIC through which public can confidence by increasing their commission structure
access information including allocation details. after implementation of ePoS devices.
Appointment of State Food Commission Implementation of inter-State portability
The Chairman and members of the State Food The Government has implemented State portability to
Commission have been appointed for the purpose of provide facilities to beneficiaries to avail of food grains
monitoring and reviewing the implementation of the from any shop within the State . A large number of
National Food Security Act. beneficiaries availed of the portability option for their
Revision of FPS commission structure convenience and experienced good service delivery.
The Government constituted a committee with the FPS licensees can also improve service delivery in order
Director of Civil Supplies as chair and including ration to attract more beneficiaries.
dealers to propose a package. The Committee has “One Nation One Ration Card” is a major project
recommended a model structure. The Government of the Department of Food and Public Distribution,
 FOOD SECURITY | 65

Government of India. It is intended to facilitate the Nine districts were affected by the cyclone, namely,
purchase of food grain in any State in which a ration Thiruvananthapuram, Kollam, Alappuzha, Ernakulum,
cardholder resides. Kerala began national portability Thrissur, Malappuram, Kozhikode, Kannur and
transactions from January 2020. States/UT that are Kasaragod. Beneficiaries were issued 15 kg of rice per
participating in the national portability cluster can family free of cost. For this, 2918 MT of rice was
obtain food grain from within the cluster States through utilised. The total expense incurred in connection with
Aadhaar-authenticated ePoS transactions. At present, the distribution was Rs 9.24 crore. The amount was
20 States and UTs have joined the One Nation One reimbursed from the Chief Minister’s Disaster Relief
Ration Card scheme. Fund.
Social audit Expenses incurred in connection with distribution of
The Government has introduced the practice of a social Ockhi free ration were as follows.
audit to bring in transparency and prevent pilferage in • Cost of rice including weighment charge:
the public distribution system. The awareness-levels of Rs 83,125,903
beneficiaries have increased. Social auditing is a process • ARD Dealer Commission: Rs 3,555,000
though which we understand the gaps in the service • Transportation Charge: Rs 5,688,000
delivery mechanism and can take measures to address • Total: Rs 9.24 crore
the gap. Government plans to conduct social auditing Flood relief initiatives
by covering more areas to ensure that continuous The State experienced two consecutive floods and
improvement in the service delivery is achieved. landslides in 2018 and 2019. Civil Supplies Department
Humanitarian Crisis and Response has taken various flood relief measures to ensure all
Over the last four years, Kerala witnessed a series of vulnerable beneficiaries are provided with ration
crisis situations, including the Ockhi cyclone, the food grains. As part of flood 2018 relief measures,
Nipah virus outbreak, floods and, with the rest of the Government has provided 15 kg of ration articles to
world, the Covid-19 pandemic. During such crises the the affected people and people living near the coastal
Government was able to decisively and very quickly take areas free of cost. The Department of Civil Supplies had
various steps to get food grain to affected populations. directed the ration dealers to supply rice free of cost. As
Ockhi response part of the move, necessary arrangements were made in
Government of India allotted a quantity of 3555 ePoS machines also. A total of 48 lakh families in 1259
MT of rice at the MSP-derived rate to the State for flood-hit villages in the State were eligible for the free
distribution to families affected by Ockhi cyclone. ration supply.
800,957
780,299

765,143
717,334
696,109
673,948
614,961
603,412

589,374

574,745
538,771

531,342

Figure 3.1 Implementation of national portability transactions in Kerala, January to December 2019
66 | KERALA DEVELOPMENT REPORT 2021

PDS and Covid-19 response Corporation. In addition to this, free rations of the
The Government of Kerala was able to use the value of Rs 300 crore were distributed to all categories
infrastructure and the deep-rooted network of the PDS of families such as AAY, PHH, NPS, and NPNS.
in the State to deal with the crisis generated by the Even in the midst of the Covid-19 pandemic, the
outbreak of Covid-19 and the subsequent lockdown. State took extraordinary steps to provide Onam food
Fully automated FPSs with e-POS machines, online kits to ration-card holders. It included 11 grocery items.
allocation systems, effective supply chain management, 83,711,76 families benefited from this distribution.
well-categorised beneficiary data and smart grievance The kits were distributed through ration shops. In
redressal systems helped the State successfully addition, 10 kg of rice per card were given in August, at
implement activities in response to Covid-19 related the rate of Rs 15 per kg to non-priority sections. Along
emergencies. During the lockdown, for the first time in with this, rice and other essential items were supplied
the history of State’s public distribution system, more at subsidised prices by Supplyco, Consumerfed, and
than 97 per cent of the beneficiaries availed their ration Horticrop. To tide over the difficulties caused by the
pandemic, Government decided to extend the supply
allotments.
of the essential-articles free kit, which included eight
Being a consumer State, Kerala depends for its
essential items, to all ration card holders.
essentials and other materials on other States. In the
A quantity of 5 kg rice or 4 kg atta per person was
wake of the Covid-19 pandemic, the Civil Supplies
distributed to migrant or “guest” workers free of cost.
Department of Kerala was in the forefront of
Workers who were not covered under the National
implementing various measures to provide relief to Food Security Act and State Public Distribution System
society and in ensuring that no one was deprived of (PDS) were only eligible for this benefit. As part of the
essential commodities in the pandemic period. Centre’s “Atmanirbhar Bharat” and “PM Cares” funds,
In April 2020, all families under Non Priority food kits containing 5 kg of white rice and 1 kg of black
Subsidy (NPS) and Non Priority Non Subsidy (NPNS) chickpeas were given to registered migrant workers for
were given 15 kg rice free of cost. Subsequently, to two months.
ensure essential food items during the lockdown In addition to these measures, students up to
period, the State Government provided an essential primary-level who are covered by the mid-day meal
articles kit costing Rs 972 per kit to 87.9 lakh families scheme were given provisions and rice kits. Around
in the State at free of cost. The essential articles kit, 2,626,110 students in government and aided schools
named the Athijeevana kit, had 17 items, including across the State benefited from the scheme. Fish workers
cooking oil, sugar, pulses, spices, cereals, and soap. The affected by the trawling ban were provided with food
kits were distributed by the Kerala State Civil Supplies kits during the pandemic.

Table 3.3 Advantages to stakeholders in the value chain

Stakeholders Advantages
Executives Executives can take informed policy-level decisions based on customised Management
Information System reports and can also understand effectiveness of scheme
implementation.
Administrators Administrators can monitor State-level lifting and distribution status of food grains on
real time basis.
Department Department officials can monitor monthly lifting and distribution status and
officers corrective measures could be taken proactively.
Supplyco Supplyco can plan doorstep delivery operations well in advance, and can also ensure
time-bound delivery of food grains at fair price.
FPS Licensee FPS Licensee can get real-time stock details, and transaction details with food grains
accounting. Each month food grain is delivered at FPS so that FPS management
becomes smooth.
Beneficiaries Beneficiaries are informed each month of their entitlement and billing details on the
given mobile number. Portability also supports the beneficiary to choose their FPS
based on convenience and service quality.
 FOOD SECURITY | 67

PDS Transformation: Impact on Stakeholders could, or nothing at all, for a meal a day, in addition
The changes in the PDS projects in Kerala helped to delivering meals to certain identified beneficiaries.
to achieve numerous advantages to all stakeholders Government plans to implement the project across all
included in the value chain (Table 3.3). the districts in Kerala.
Road Map for the Future of the PDS More awareness must be created among beneficiaries
There are various projects in the pipeline that are likely on their entitlements. The Department has been
to fructify in the next five to 10 years that will add publicising various channels of grievance-redressal
to the benefit of stakeholders. These projects include that beneficiaries can seek for the resolution of their
the development of scientific storage, implementation problems. Radio, television, print media, and social
of the Hunger-Free Kerala project across the State, media are being used to create more awareness among
the diversification of the food basket in the public beneficiaries. Measures are also being taken to create
distribution system, building greater awareness among awareness among migrants to avail of their entitlements
beneficiaries, and optimisation of the supply chain. in their own languages. The State also gives importance
Storage loss occurs mainly because of loss of to diversifying the basket of food items for public
moisture, prolonged storage, varying climatic distribution schemes. It is important that the number
conditions, the bleeding/spillage of grains from gunny of beneficiaries and outreach of the public distribution
bags, bird/rodent infestation in storage complexes, system be utilised to increase nutrition. It is desirable to
sliding down/deterioration of stocks, and fungus/insect add food grain such as millets to consumption baskets.
infestation of stocks. To address storage losses, options The Government of Kerala introduced a programme
for the construction or hiring of scientific storage units called “Subhiksha Keralam” to increase production in
must be explored. The Food Corporation of India agriculture and related sectors during the pandemic.
has mentioned the advantages of steel silos with bulk The programme aims at increasing the production of
handling facilities as a highly mechanised and scientific rice, fruit, vegetables, tubers, other food grains and
way of bulk storage of food grain that brings in efficiency, legumes. Various Government departments are working
flexibility of operations and prevents losses during with farmers, youth, repatriated NRIs, Kudumbashree
storage and transportation. If food grain is stored in silos units and NGOs to implement the programme. The
and transported in bulk, losses due to theft, pilferage objective of the programme is to make agriculture a
and transportation would be negligible, in contrast to major livelihood source in the State, and to resolve food
food grain storage in bags in conventional warehouses. security concerns.
The requirement of land for silos is approximately one- Conclusion
third of the space required for conventional storage The Government of Kerala has taken various measures
warehouses of similar capacity, an added advantage. to ensure the implementation of various food-based
Moreover, silos can be operated round the clock. This welfare schemes, including the Public Distribution
would bring in flexibility and would improve overall System, ICDS, and Midday Meal Scheme, and to
efficiency. It would also contribute to improving the cover all vulnerable people and eligible beneficiaries in
efficiency of the railways and also in creating an efficient the population. Control and monitoring mechanisms
food supply chain management system. have been strengthened to oversee the implementation
The Hunger-Free Kerala Project is a State of the scheme. More measures are in the pipeline for
Government initiative under the 13th Five-Year Plan. the enhancement and continuous improvement of
In keeping with the UN Sustainable Development food safety-net programmes. Scientific studies need
Goals for 2030, different districts in Kerala followed to be conducted to optimise the food grain supply
different methods of implementing the project. Some chain system, increase efficiency in route-planning,
districts, such as Thrissur, provided meals at subsidised and ensure the timely delivery of food grain at defined
rates and delivered meals to the elderly, while others, locations. The Government also seeks to address food
like Alappuzha, operated on a largely charity-based security concerns and provide new livelihoods through
model, with customers allowed to pay whatever they its flagship Subhiksha Keralam programme.
68 | KERALA DEVELOPMENT REPORT 2021

Chapter 4
Water for Kerala’s Development:
Status, Challenges and the Future
The vision for water management in Kerala is to project benefitted an ayacut of 33670 hectare (ha)
achieve water security, long-term sustainability of (gross) and 17,179 ha (net). The major crops irrigated
water resources, equitable distribution of water, citizen include paddy (3925 ha), coconut (6354 ha), banana
stewardship over water, and a human rights-based (2126 ha), rubber (3868 ha), and vegetables (1765 ha).
approach to water management. In order to achieve The desalination of low-level paddy fields in Kottayam,
these, the State has to embark upon a series of activities, drinking water supply schemes in Idukki, Ernakulam
which include (i) the restoration and protection of and Kottayam districts, industrial benefits for the
key water ecosystems like rivers, lakes, ponds, and Hindustan Newsprint Factory and the generation of
flood plains, (ii) augmentation of usable water, (iii) hydel power are major additional benefits of the project.
basin-wide cooperation, (iv) the integration of surface Work on the Idamalayar Irrigation Project faced
and groundwater management, (v) water abstraction several stumbling blocks, especially at the Railway
compatible to hydrological and environmental crossing and MC road crossing works. The Water
sustainability and (vi) empowerment and involvement Resources Department cleared hindrances at the MC
of people through an institutional mechanism of local road crossing by adopting the push-through mechanism
governments. during this period. This turned to be a landmark in
These actions should be undertaken through the history of the Water Resources Department. Thus,
stakeholders’ participation, decentralisation, accountability, an innovative mechanism cleared the hurdle at the
and improved technology to reduce water consumption MC road crossing portion in the low-level canal of
for daily use in all sectors, particularly high water- Idamalayar. The project was cleared by constructing a
consuming sectors like agriculture, manufacturing
tunnel of 35 m and also through a cut and cover canal
industry, and domestic use.
construction of 66 m.
Significant Achievements in Irrigation Sector in the In tune with the emphasis of the 13th Five-Year
13th Five-Year Plan Period Plan, there was increased focus on minor irrigation.
The main activities undertaken in the irrigation sector The result was an expansion of net irrigated area over
during the 13th Five-Year Plan concerned a shift in the period from 3.92 lakh ha (2017-18) to 4.04 lakh
focus from major and medium irrigation to minor
ha (2018-19) and further to 4.09 lakh ha (2019-
irrigation, a special focus on canal modernisation,
20). Community micro-irrigation techniques were
drought management, and the completion of ongoing
initiated during the period by the Department of Water
major and medium irrigation projects in a time bound
Resources in order to enhance irrigation efficiency. Six
manner.
schemes for micro-irrigation amounting to Rs 11.86
The Kerala State Planning Board formed a
crore have been identified in Ernakulam, Kozhikode,
five-member Technical Committee to evaluate
Kasaragod, Thrissur, Idukki, and Wayanad districts.
the Muvattupuzha, Idamalayar, Karapuzha and
Banasurasagar projects. The Secretary, Water Resources The mandate of the Department of Water Resources
Department was also a member of this Committee. under the Haritha Keralam Mission Programme was
After studying the implementation difficulties, clearly water conservation. The objective was to renovate
defined targets and timelines were set by the Committee and clean existing water resources, thereby making
for the completion of these projects and they were them available for irrigation and drinking purposes.
funded accordingly over the period of the 13th Plan. Approximately 165 ha of ayacut was developed by
The commissioning of the Muvattupuzha valley renovating 375 ponds between 2017 and 2020. A
irrigation project deserves special mention. The Watershed Master Plan of 914 gram panchayats was
commissioning of the project on July 10, 2020, was prepared. Under Haritha Keralam, with the support
a major achievement of the period. The completion of public participation, first-phase renovation works at
of Ezhuthonippadam aqueduct and commissioning of the Varattayar, Kolarayar, Meenachilar, Kodurar, and
Koothattukulam Lift Irrigation, as part of this project, Meenatharayar schemes were completed. Renovation
require special reference. With a cumulative expenditure work on 380 tanks and ponds were completed under
of Rs 1083.64 crore, as on date of commissioning, the minor irrigation Class I schemes in 2017-2020.
 WATER RESOURCES | 69

Two hundred and seven lift irrigation (LI) schemes Increasing Demand and Its Potential Impact
were affected by the floods of 2018. Rs 1400 lakh were The development of water resources in Kerala is largely
sanctioned for their repair. driven by expanding population, urbanisation, growth
The Minor Irrigation Census helps in building a of irrigation/agriculture, food production, energy
comprehensive data base of irrigation potential created demand, macroeconomic process, and changing
and utilised, water distribution practices, and sources consumption pattern. Between 1951 and 2011, Kerala’s
used for energising the schemes. The Sixth Census, total population grew by 148 per cent, but the urban
with reference year 2017-18, is in progress. The first population grew by 783 per cent. Per capita annual
Water Body Census is also being conducted along with availability of freshwater declined from 14443 cubic
the Sixth Minor Irrigation Census. metre in 1951 to 5301 cubic metre in 2021.
Groundwater conservation and recharge aims at Although Kerala’s population is expected to stabilise
the sustainable development of groundwater resources. in near future, the demand for water may not decline.
These recharge schemes include rooftop rainwater The high growth of urbanisation, rising living standards
harvesting for groundwater recharge through dug wells, of the population, growth of per capita income and
recharge pits, bore wells, subsurface dykes, and small high levels of consumption and energy use will lead
check dams. Groundwater recharge through rooftop to an increase in water use. Urbanisation impacts the
rainwater harvesting was done in public buildings and hydrological cycle in several ways. It extracts a significant
Government schools. During the 13th Five-Year Plan amount of water from surface and groundwater sources
period, The Ground Water Department successfully and extends impervious surfaces. It prevents recharge of
implemented rooftop rain water harvesting through groundwater, exacerbates flood risk, and pollutes water
recharge pits to enhance groundwater-levels of dug wells bodies through the discharge of untreated wastewater.
for Jala Samrudhi project in Kattakada constituency in Water quality is affected due to non-point source
Thiruvananthapuram District. Kattakkada constituency pollution, and lack of proper wastewater management
was declared the first assembly constituency in Kerala to and adequate sewage treatment facilities.
implement artificial groundwater-recharging structures in As the quality and quantity of surface water come
all Government schools and offices. There were significant under stress, society turns more and more towards
achievements in flood control activities. This includes the groundwater to meet water demand. There is increasing
achievement of Government of India-approved schemes dependence on groundwater for irrigation. The
such as KEL II, KEL III and KEL IV and State Schemes. majority of human settlements, particularly in rural
The latter includes construction of the outer boundaries of areas and urban fringes, depend on groundwater for
Padasekharams in Kuttanad taluk, and the modernisation meeting their daily needs. Several parts of the State
of the Thanneermukkom barrage. have reported depletion of groundwater resources.
The third stage of Thanneermukkom regulator Most of these impacts are manifested locally. The
cum bridge (RCB) was completed and opened to the upstream-downstream conflict might exacerbate with
public on July 31, 2018. The bridge has 28 stainless increasing water demand. Besides, there are competing
steel shutters and allied lifting mechanisms. As a flood uses of water. The present institutional mechanism
control measure, mineral sand was removed from the follows narrow sector-specific mandates. Thus, there
Thottappally spillway. The actual design capacity of is a fundamental disconnect that results in poor
Thottappally spillway is 1800 cubic metre per second. performance and negative impacts.
It was reduced to 600 cubic metre per second because Risk-sensitive Areas
of reduction of the width of the estuary from 380m to Kerala has several risk-sensitive areas.
150m. This narrowing was a crucial factor in the floods 1. Low-lying coastal stretches particularly the
of 2018. In order to widen the estuary, 2,42,831.25 Kuttanad area, and low-lying lands surrounding
cubic metre of sand and obstructions were completely the Vembanad lake and other coastal water bodies.
removed before July 23, 2020. These densely populated coastal stretches are
Kuttanad Package II. A Package for the Comprehensive vulnerable to flooding, storm surges, and stronger
Development of Kuttanad, based on a report prepared winds. Availability of freshwater is a major challenge
by the Kerala State Planning Board was released by the due to the brackish water environment.
Chief Minister. The Rs 2400 crore package envisages 2. Islands within the backwaters, and barrier bars along
inter-departmental coordination and funding through the coastline that suffer from inadequate fresh water
the Plan and KIIFB. supply.
70 | KERALA DEVELOPMENT REPORT 2021

3. Drought-prone areas that suffer from water shortage stress due to gross alteration of catchments, land
in certain periods during summer months. The use change, deforestation, overexploitation of river
areas that are often drought-affected are distributed bed deposits, human intervention, flood plain
in the districts of Palakkad, Wayanad, Kannur, and occupancy, and prolonged negligence to maintain
Kasaragod. There are places almost in all districts traditional water structures. All these actions take
facing occasional water stress due to low rainfall or place at a local level. However, there is a synergistic
climatically draught years. impact through aggregation. Repairing these altered
4. The mountainous areas mostly inhabited by the ecosystems may not be an easy task.
scheduled tribe population. The rain shadow areas 2. The data on surface water used are based on the
along the Western Ghats, particularly, the Attappadi computations that were attempted in 1974. There
valley in Palakkad and the Marayur area in Idukki have been several changes in water availability, use,
receive very low rainfall and experience drought and demand afterwards. The rainfall pattern is
conditions. also changing. Surface water data need updating.
Besides these areas, the slums within the cities are The method used for groundwater assessment is
also risk-sensitive areas. There are several stretches in a generalised version. Geologically, the State is
the coast adjoining major urban centres, where tank composed of several structural blocks. As a result, the
water supply is found necessary to meet the demand aquifers are disjointed and localised. These realities
for drinking water during summer months. are hardly factored in while assessing groundwater
Emerging Scenario in the Context of Climate conditions.
Change 3. There is inequality in access to drinking water
Climate change and variability will compound the and sanitation services. Infrastructure for water
situation and problems might aggravate particularly in supply is not adequate. The marginalised sections
the risk-sensitive areas. Climate change will affect water of the society face several problems of access. Wide
and other associated ecosystems in various measures. variations in inter- and intra-urban and rural areas
The frequency and magnitude of weather extremes will are another set of challenges in water management.
increase. Some of the impacts of climate change will 4. In spite of multiple rules and regulations, the systems
be manifested through sea-level rise, change in rainfall for industrial and urban effluent management are
pattern, and rise in water and ambient temperature. not at the desired-level causing serious water quality
With the sea-level rise, saltwater will move further problems.
upstream along the estuaries, lagoons and rivers and, 5. Non-point source pollution is another major issue
consequently, the freshwater environment downstream due to dispersed nature of settlements and intensive
will be affected. agricultural practices. Existing rules and regulations
Kochi city is one of the urban areas in Kerala, which are not adequate to manage non-point source
is highly vulnerable to the sea-level rise. The water pollution.
supply and sanitation infrastructures will also be under 6. The existing water management follows a
stress due to the sea-level rise. The islands and barrier centralised system principally governed by the
bars will be exposed to the vagaries of rising sea-levels. Kerala Water Authority (KWA). There are also
The temperature increase in water bodies will affect several other organisations like KSEB, Water
water quality and reduce their self-purifying capacity. Resource Department, State Groundwater Board,
The available reports indicate that several parts of the and Central Ground Water Board, handling water
western ghats experience a rise in temperature of 1 to resources. Lack of effective coordination at the
2oC. This causes depletion of soil moisture and will resource management level and also at the use level
affect agriculture. Crops with shallow root systems poses problems to evolve proper water management
face water stress and productivity is falling. It will have practices.
serious repercussions on the livelihoods of the farmers. State of Water Resources: The Supply Side
There is also the issue of urban heat islands. Kerala is blessed with an abundance of rainfall (Figure
Constraints on Water Resources Management 4.1). Considering an annual rainfall of 305 cm during
Water resource management in Kerala faces several the water year of 2018-19, the average gross yield from
constraints: rainfall in Kerala has been estimated at 118,523 cubic
1. The water ecosystems in the State are under severe mm. However, due to undulating and asymmetric
 WATER RESOURCES | 71

topographic, geomorphic settings and intrastate runoff, 7900 cubic mm infiltrates to recharge ground
variations of rainfall pattern, rainwater availability in water and the rest 5510 mm is stored in reservoirs.
Kerala differs both from the coast to the Western Ghats Besides, there is water diversion as part of the interstate
crest in the west to east direction, and also between agreement with Tamil Nadu. It is not possible to plan
north and south Kerala. The rainfall varies temporally to use the entire quantity of 41,000 mm of water. Some
too. A little over 65 per cent of the total rainfall amount of freshwater is required as environmental flow
precipitates during the monsoon months. While south to maintain the functioning of the hydro-ecosystem of
Kerala receives rainfall both during the southwest all water bodies, like rivers, lakes, and backwaters. A
monsoon and the northeast monsoon, north Kerala certain amount is required to prevent salt water ingress
receives rainfall only during the southwest monsoon. from the sea and some flow should be maintained to
While Thiruvananthapuram district receives 33 per flush out wastes that are regularly discharged into the
cent of the total rainfall during the northeast monsoon, rivers from human settlements. About 40 per cent of
Kasaragod district receives only 9 per cent of the total flow should be allowed for all these functions and the
rainfall during the northeast monsoon. The orography rest 60 per cent may be considered as annual utilisable
modifies rainfall patterns and the foothill zone across water. However, even this may not be feasible because
the State receives the maximum rainfall. As a coastal rivers are rain-fed in nature and hence experience wide
State, Kerala is also blessed with ocean water and variations in flow between non-monsoon and monsoon
brackish coastal water bodies. However, here, we shall seasons. As a result, drawing 60 per cent of the water
limit our discussion mainly to freshwater resources. during non-monsoon months may not be practical;
Surface water availability rainfall is the main source of all available water and it
Forty four rivers drain Kerala and 41 of them are is mostly concentrated during the monsoon months.
west flowing and discharge into the Arabian Sea. The While annual water availability indicates a surplus,
remaining three rivers flow eastwards to the Cauvery there is a deficit of 7142 cubic mm during the summer
river basin. The total average annual yield of all the 44 months (Table 4.1).
rivers in Kerala is estimated as 70,323 cubic mm. This The availability of water also widely varies across
is about 30 per cent less than that of a single river like space. All the 44 basins are not equally productive.
the Godavari. The utilisable yield in Kerala stands at Water yield depends on rainfall, catchment character,
42,772 cubic mm. drainage pattern, and land use. The catchment character
Another estimate indicates that total surface water of drainage basins in north Kerala, central Kerala, and
availability in Kerala, after accounting for losses due to south Kerala are different. The rainfall distribution
evapotranspiration and interception, is about 54,410 trend is also different. All these are reflected in the total
cubic mm, of which 41,000 cubic mm flows as surface water yield and also utilisable yield as evident from the

Figure 4.1 Monthly distribution of rainfall in Kerala, April 2018 to March 2019 in mm
72 | KERALA DEVELOPMENT REPORT 2021

Table 4.1 Availability and demand of water in Kerala, 2001 in cubic mm

Items Annual Summer months
Availability Demand Availability Demand
Surface water 24,600 3690
Ground water 5,135 5135
Stored surface water 5,500 5500
Domestic demand 1,226 809
Birds and animals 438 293
Industrial demand 6,400 3,200
Conservation of Kari land 5,000 3,500
Irrigation 13,665 13,665
Total 35,235 26,729 14,325 21,467
Surplus/Deficit (+) 8506 (-) 7142
Source: KRWSA; Kerala Development Report, Planning Commission.
data worked out for sample basins chosen from all three more than 60 per cent of their ground water draft for
segments of the State (Table 4.2). domestic and industrial purposes.
Ground water availability Traditionally, people in Kerala depend on open wells
The total annual groundwater recharge in Kerala for meeting their domestic needs and also for irrigating
homestead gardens. There are about 4.5 million open
is 5769.23 cubic mm and the net availability or
wells in Kerala. The density of open wells is very high
extractable recharge is 5211.75 cubic mm. The net
(around 150 per square km), perhaps the highest in the
groundwater availability at the district-level varies from
country. On an average, more than 90 per cent of wells
186.14 cubic mm in Idukki to 591.44 cubic mm in
are used for domestic purposes.
Palakkad. Thrissur has a net groundwater availability of
The stage of development of groundwater varies
590.48 cubic mm. Average net availability was in the from 24.51 per cent in Wayanad to 79.64 per cent
order of 0.13 cubic mm per square km. in Kasaragod. Based on the stages of ground water
By 2017, the annual groundwater extraction for development it emerges that Chittur block in Palakkad
all uses was 2672.09 cubic mm or 51.27 per cent of is overexploited; Kasaragod block in Kasaragod and
the total extractable recharge. Around 46 per cent of Malampuzha block in Palakkad are in critical condition.
extracted ground water was used for irrigation and the There were 30 blocks distributed across nine districts in
rest 54 per cent were used for domestic and industrial the semi-critical category in 2017. In 2013, there were
supply. There are wide variations among districts in the only 18 CD blocks under the semi-critical category.
matter of ground water use. In districts like Kasaragod, Also, extractable groundwater recharge declined by
more than 72 per cent of ground water draft is used 6.93 per cent and net groundwater availability for
for irrigation, whereas there are several districts that use future use declined by 3.94 per cent between 2013
Table 4.2 Annual yield of selected river basins in Kerala in cubic mm per square km
River basins Area* Average discharge, Yield
(km2) 1998-99 to 2008-09 (%) $ (mm3/km2) $
Monsoon Non-monsoon Annual Utilisable
Valapattanam (North Kerala) 1867 94 6 2.19 1.57
Bharatapuzha (Central Kerala) 6186 87 13 1.21 0.67
Chalakkudi (Central Kerala) 1704 86 14 1.83 1.19
Pamba (South Kerala) 2235 79 21 2.08 1.42
Vamanapuram (South Kerala) 867 70 30 1.53 1.03
Source: Government of Kerala; Central Water Commission.
* $
 WATER RESOURCES | 73

and 2017. Extraction of groundwater increased from 14 dams and six barrages maintained by Irrigation
46.63 per cent in 2013 to 51.27 per cent in 2017. If Department, 42 dams by the Kerala State Electricity
this trend continues, the groundwater scenario will be Board and two dams maintained by the KWA. Total
under stress in near future. stored surface water in Kerala is estimated at 5500
Freshwater lakes cubic mm or 7.75 per cent of available water. Water is
While most of the natural wetlands are brackish, diverted through canals for irrigation during the dry
there are few freshwater bodies too. The important season. It also helps to recharge wells in certain areas.
ones are Vellayani, Sasthamcotta, Pukot, Enamakkal, But the reservoirs are of mixed blessings. On the one
Manakkodi, Muriyad, Eravikulam, Devikulam, and hand, they facilitate the generation of hydroelectricity,
Elephant Lake. The total area of these nine lakes is provide irrigation water for agriculture, facilitate
around 16 square km. Among these nine freshwater pisciculture, and therefore contribute to development.
lakes, three lakes – Sasthamcotta Lake in Kollam, On the other hand, they restrict the silt movement
Vellayani Lake in Thiruvananthapuram and Pukkot and regular river flow due to which the coastal areas
Lake in Wayanad – are important. Water from the are deprived of sediment supply. This in many cases
Pukkot Lake is used for pisciculture and irrigation. leads to imbalance in coastal sediment distribution.
Vellayani lake and Sasthamcotta lake supply drinking With restricted sediment flow, nutrient movement is
water for large urban areas. Kollam municipality and also reduced. This affects the productivity of coastal
a couple of surrounding panchayats depend upon the waters. Most of the reservoirs in Kerala are silted up.
Sasthamcotta lake for their drinking water needs. Impounding of new reservoirs is subject to various
constraints.
Ponds, tanks, and springs
Ponds and tanks are traditional rainwater harvesting Sectoral Demand for Water and The Present State
structures used widely in tropical countries. The ponds Water is necessary for all human activities. There is a
in Kerala may be grouped under three types: (a) natural competing demand and also multiple uses. However,
depressions (locally known as chiras); (b) excavated and water is managed or provisioned through various
man-made ponds or tanks; and (c) valley-head ponds sectors. We intend to discuss the sectoral demand for
or talakkulams. While the first two types are located in water, accomplishments, and development challenges
low-lying areas, the third type is found in the valley to meet these demands.
head. Many of the valley-head ponds in Kerala are Drinking water, sanitation and human health
associated with springs. Spring-fed ponds are perennial; The Water, Sanitation, and Hygiene (WASH) is
however, all springs do not yield large quantities of fundamentally important to lives, livelihoods, and
water. CWRDM has identified 236 perennial springs in sustainable development. Everyone needs access to
the State, of which about 20 per cent are being utilised. adequate safe water for drinking, household use,
The State has 995 large ponds with a minimum personal hygiene, and sanitation. Kerala has progressed
water storage capacity of 1500 m3 each. They are found significantly in this matter. Nevertheless, there are areas
throughout the State, but a sizable number of these and group of households that lack access to drinking
ponds are located in Palakkad, which is drought-prone. water and sanitation. Efforts of 50 years of public
Rainfall in this area is lower than in other parts of the intervention in creating drinking water facilities have
State. Even in Thiruvananthapuram urban corporation, not brought the desired results in many places. In
there are 80 ponds, some of this are still in use. The some panchayats, drying up of wells during summer
Department of Water Resources has carried out a months is a common phenomenon that affects sizable
census of the ponds and has tabulated 45,000 ponds by number of households depending on well water. The
giving a unique identification number. Most ponds and worst sufferers are poor and landless households, small
tanks in Kerala are small structures conforming to the landholders, scheduled castes, and scheduled tribes. It
region’s more variegated topography. Nevertheless, they is women who bear the brunt of the ordeal of fetching
have helped the State to augment its water resources water from faraway places. Caste and gender-based
since the early days. inequities and economic inequalities are also dominant
Water storage in several panchayats.
Many of the rivers have been impounded in their In March 2017, the total number of water supply
upstream sections for irrigation and hydroelectric schemes in operation under Kerala Water Authority
projects. There are 54 dams in Kerala, which includes (KWA) was 1073 with a total installed capacity of
74 | KERALA DEVELOPMENT REPORT 2021

3367.13 million litre per day (MLD). It covered 1.81 periodic water shortages and actual water supply was
crore people or 54 per cent of the total population in the 45 litre per capita per day (lpcd) against the designed
State. The average per capita availability of piped water average supply of 60 lpcd. The water supply fell to
is 104.20 litres per day. Out of the 1073 schemes, 989 only 29 lpcd during the summer season. Some project
schemes catered to rural areas, and 84 schemes catered schemes resorted to three days of rotational water
to urban water supply schemes. Given the present supplies in the summer to serve all consumers.
rate of consumption in the State as indicated by the Another survey in 2012 indicated that a majority
KWA, the annual water requirement for piped water of the beneficiaries drew water from traditional sources
supply will be 2310 cubic mm by 2021 considering the to supplement water supply projects. Although the
projected population of the State at 34 million. project was rated satisfactory based on relevance,
Household-level data from Census 2011 indicated efficacy, and efficiency, it was pointed out that “its
that of 7.72 million households in the State, only over performance towards the end of the project was
29 per cent households were covered by tap water less than its demonstrated potential.” The project
supply. Treated tap water was available for 23.35 per performance assessment report highlighted a few points
cent of households. Well water was the main source that merit close scrutiny. These were: (i) poor quality
of drinking water for 62 per cent of households and of water; (ii) lack of technical and executive hands
the bulk of these wells (47.4 per cent) were uncovered. for maintenance; (iii) dearth of experienced ngos;
Around 8.5 per cent of households depended on hand (iv) dependence on donor agency for maintenance
pumps, tube wells, bore wells, springs, rivers, and canals cost; and (v) institutional problems related to repair
as the main source for drinking water. Also, 77.7 per of major damages to community schemes. The issues
cent of households had drinking water sources within identified in the evaluation report are significant from
their premises, 14.1 per cent have near the premises the user’s perspective, affordability and policy planning.
and the rest 8.2 per cent have to travel some distance to Investment deficit for aging infrastructure is also
fetch water. Groundwater was the mainstay for meeting another area of concern.
the domestic needs of more than 80 per cent of the
Urbanisation
rural and 50 per cent of the urban population.
There are no appreciable differences between rural and
Kerala Rural Water Supply and Sanitation Agency urban areas in Kerala in the matter of drinking water
(KRWSA) or Jalanidhi scheme
supply, although, spatial disparities are well evident
The KRWSA, popularly known as Jalanidhi, was in the district-level disaggregated data. The KWA has
entrusted in 2000 with the responsibility to facilitate reported that only 54 per cent of the urban population
the implementation of rural water supply systems receive piped water supply. The coverage varies from
as part of a World Bank-supported project. The first 10 per cent in Kasaragod district to 87 per cent in
phase of this project was launched between 2000 and Ernakulam district. Census 2011 showed that around
2008. This phase covered 1.13 million people building
59 per cent of households in urban areas depended on
3663 village-level water supply schemes in 112 gram
well water against an all-India average of 6.2 per cent.
panchayats or 11 per cent of all gram panchayats. The
Ernakulam, Palakkad and Thiruvananthapuram were
second phase of the Jalanidhi project started in March
only three districts, where more than 50 per cent of
2017. 5072 Jalanidhi schemes were in operation under
urban households had access to tap water supply.
Phases I and II covering 1.49 million people. The
highest number of schemes (929) was in Malappuram Energy
covering 3.16 lakh people. Kerala’s energy sector is dominated by hydropower,
Coverage alone does not fully reflect inequalities. which accounted for 71 per cent of the total installed
Disparities are evident in the level of services related capacity of 2961 mega watt (MW) in 2017. This was in
to safety, accessibility, and reliability of water services. sharp contrast to India’s dependence on hydel power for
There has also been the problem of slipping back. During 14 per cent of its energy demand. There were 24 hydel
2016-17, the total number of habitations covered was power projects with a total installed capacity of 1921
21,551 of which 152 habitations slipped back. An MW in 2009, which increased to 2108 MW in 2017.
evaluation report by the independent evaluation group Besides, there are 21 hydropower schemes at various
in 2013 had noted that according to the independent stages of implementation. On completion, they are
household survey commissioned by the World Bank in expected to add nearly 380 MW in installed capacity
2008, 44 per cent of the community schemes reported under hydel power. KSEB continues to invest in hydel
 WATER RESOURCES | 75

power and tries to maintain the ratio of 80:20 between less compared to other neighbouring States except in
hydel power and thermal power. Ernakulum district. Data on total water utilisation
High rainfall, an abrupt rise in slope along for the industry is not available. However, Centre
the western ghats scarp, and high-altitude plateau Groundwater Board (CGWB) estimate indicated that
formation have provided the State certain unique groundwater extraction for industrial use in Kerala
opportunities to impound reservoirs and set up was 14.39 cubic mm by 2017. Number of water
hydel power projects. However, the power sector in connections given by the KWA for industrial use was
Kerala is vulnerable to rainfall variations on account only 1623 in 2017.
of over-dependence on hydel power. Any fluctuation According to FICCI, the current water utilisation
in rainfall directly impacts power generation. The for the industries in the country is 8.5 per cent of
drought in the year 1982-83 witnessed unprecedented the total water abstraction, and out of which almost
power shortages in the State. Till that year, Kerala was 45 per cent is from surface sources, 35 per cent from
considered as a surplus State. Dependence on hydel groundwater and 25 per cent from municipal sources.
power makes Kerala’s energy scenario green. However, This ratio can be assumed for Kerala also even though it
there are geographic limitations to continue with the may be slightly on the higher side. Thus, the industrial
installation of hydel power projects, particularly large water demand for the State was estimated to be 1015
projects. In this context, small and micro hydel projects cubic mm in 2016.
are gaining importance. There are successful models Tourism and water recreation
like Meenvallam micro-hydel project being developed Tourism and water recreation are an important
in the Palakkad district. economic activity in Kerala. It generates substantial
Agriculture and food security revenue for the Government. Water-based tourism,
The utilisation of surface water for irrigation is not both in the sprawling backwaters and rivers in Kerala,
directly assessable. However, an indirect assessment can invariably finds an important place in any discourse on
be made. As with any region, the major user of water in tourism potential. Provisioning of potable water in the
Kerala is the irrigation sector. The irrigation efficiency tourist centres is a priority activity. Any new idea on
in the studies carried by CWRDM has been found to new accommodation, transport or entertainment should
be as low as 40 per cent. By 2016, the net irrigation first necessarily consider the present status of water
water utilisation was estimated as 3532 cubic mm and availability and facilities enjoyed by the residents of the
the gross irrigation water utilisation was estimated as area. Maintenance of water quality of the water bodies is
8830 cubic mm. This is supplied from both the surface an important issue in developing water-based tourism.
and groundwater sources. The groundwater usage for Environmental flow
agriculture is estimated as 1221 cubic mm; the rest is Water is also required for maintaining aquatic habitat,
met from surface water sources, which include major, wild lives and preserving environment. Though there
medium, and minor irrigation structures. no estimate of the water requirement to maintain
Predicting the future demand in irrigation sector is ecosystem functions, it has been suggested that 40 per
a challenging task, especially in the context of climate cent of river discharge may be left for all ecosystem
change. Irrigation demand may rise if rainfall declines. services. One estimate indicated that 439 cubic mm of
At present, the area under irrigation is a little over 19 water is required annually for the birds and animals.
per cent. The water demand will increase with the Acute shortage of water within the forest areas is often
expansion of irrigated areas. However, there are several reported during summer months, which results in
constraints to expanding the irrigated area in Kerala human-animal conflicts in the villages along the forest
due to the undulated nature of the topography, which fringe. It is important to work out the environmental
also causes considerable loss of water. Irrigation water is flow for all the rivers in Kerala.
required during summer months when the State faces Challenges to Water Management
a deficit. Hence, emphasis should be given to adopting Kerala faces several challenges in the matter of water
modern techniques and scientific water management management ranging from meeting sectoral demands
practices to improve efficiency. to maintain ecosystem services of water. There are also
Industry challenges related to manage water-related extremes
Large-scale manufacturing industries are not prominent like flood and drought, source sustainability, and to
in Kerala. Industrial demand for water is relatively improve the quantity of usable water availability.
76 | KERALA DEVELOPMENT REPORT 2021

Demand management years and more and more water bodies are recording
Demand for water is increasing in all sectors, higher Biochemical oxygen demand (BOD) values.
particularly for domestic use, agriculture, industry, Water in most of the river segments is rendered unfit
urban development, flushing out wastes from water for consumption without treatment. The nutrient
bodies, energy, and ecosystem services. However, loading of water bodies is also increasing and in some
there are uncertainties about the precise amount of cases is alarming. Several stretches of the rivers flowing
water required to meet all the demands. Meeting through the cities show “Urban River Syndrome”.
drinking water need is always a priority. The challenges Bacteriological contamination of groundwater is
in this sector are: (i) reaching out to the uncovered widely reported. Considering the fact that 62 per cent
section of the population; (ii) improving the quality of households depend on wells for meeting drinking
of the existing services; and (iii) ensuring bulk water water needs, deteriorating quality of groundwater is a
availability to meet the unmet demand. There is a need matter of serious concern.
to evolve special management strategies for increasing Management of deteriorated groundwater is
the availability of water during the summer season. more complex than surface water as the sub-surface
Quantity management
geochemical reaction between contaminants and
earth materials is not always well understood and
Improving the quantity of available usable water is a
the subsurface movements of pollutants are slow
big challenge. The amount of rainfall is more or less
and difficult to detect. Further, the retention time of
the same over the years. What is important is to devise
pollutants in ground water is much longer than that in
intervention measures to increase the residence time of
surface water. Improving water quality of both surface
water on the land surface. Water harvesting through the
and ground water is a huge task as it is also linked with
four-water concept is gaining momentum for increasing
solid and liquid waste management. Unsafe water, lack
water availability in many drought-affected areas. The
of sanitation, and hygiene are the leading causes of
four-water concept stresses using rain water, surface
mortality and morbidity in several countries.
water, groundwater, and maintaining the availability
of soil moisture in the upper part of the soil column. Water-related extremes and risk management
The overall water availability can be enhanced through Kerala confronts water-related extreme events like
conservation, proper maintenance and improvement of flood. While some parts of the State like Kuttanad
storage facilities, creating additional storage, renovation experience incidence of floods almost every year, the
of derelict traditional water structures, and watershed State as a whole suffers from flood problems from time
management. Multi-usability of water resources will to time. Landslides also occur in the western ghat areas
also to the gross availability. during monsoon months. Besides, the coastal surge is
The existing storage capacities of the dams are only another issue affecting sizable parts of the coastline. All
7.75 per cent of the available water. The National these incidences cause the loss of human lives and the
Water Policy of 1987 and the State Water Policy of economy.
1992 had clearly stated that all existing and future The State witnessed devastating floods in the
reservoirs – both irrigation and hydel – should have a consecutive two years of 2018 and 2019. The flood
drinking water supply component. In addition to the of 2018 was an unprecedented event claiming 488
Aruvikkara and Peppara reservoirs, which were built lives and affecting 56 lakh people across the State. Ten
for water supply alone, only Malampuzha and Peechi out of 14 districts experienced flood fury. More than
have drinking water components (i.e., only four out of 60,000 houses were devastated. Exposure of people to
30 reservoirs in the State). The best long-term solution hydrometeorological hazards has been growing over the
for meeting most of the domestic and industrial water years. On one hand, the water holding capacity of river
needs in the future is to draw water from all existing provenance is declining to cause high instantaneous
and future reservoirs. The irrigation projects which are flow and on the other hand there is a high reduction
under different stages of completion may be reviewed of flood cushioning area downstream. People are living
to plan for their timely completion. in the flood plains and there is also a heavy economic
investment in the vulnerable areas. Climate change is
Quality management likely to increase flood incidence. The flood in 2018 was
Deterioration of water quality, both surface water, and followed by low rainfall and a drought-like situation
ground water is a major issue. Analysis of available data prevailed. One of the challenges is how to make Kerala
indicates that water quality is deteriorating over the water-related disaster risk resilient.
 WATER RESOURCES | 77

Restoration of ecosystem services, flood plain management is a complex and interdisciplinary issue
zonation, vulnerability assessment, and adaptation encompassing the domains of science, technology, and
of nature-based flood management practices are society. The future water management and development
necessary steps to address flood-related disasters. In strategy should address this complexity.
recent years, there is stress on implementing nature- Developing an integrated water management
based flood protection measures or a hybrid of nature- framework
based and structural measures for flood management Almost all developed countries either have prepared
across the world as purely structural measures are or are in the process of preparing a water management
found to be inadequate. The nature-based measures framework for the country as a whole, and also for river
stress system scale perspectives, including spatial scale, basins. The best-known document is the European
time scale, integration with ecosystem conservation Union Water Development Framework. The Union’s
and restoration, adaptive management, and people’s Water Framework Directive (WFD) which was
participation. Room for rivers and increasing water adopted in 2000 is a major driving force influencing
holding capacity of the catchments are some of the new water management at the national, regional, and local-
initiatives. levels in all the EU countries. The directive covers river
Increasing sectoral water use efficiency basin management, requirements to coordinate water
There are two options to increase water use efficiency use within river basins and river basin planning. The
in agriculture: reduction of water losses and increase WFD is the principal driver of recent changes in the
of productivity per unit of water use. Reduction of scalar organisation of water governance and advocacy
water loss can be attained through agronomic practices, in Europe. Several other countries have also prepared
changing crop calendar and irrigation management, similar documents.
such as the use of precision irrigation and participatory In India, the Mihir Shah committee proposed
irrigation. The second option refers to increasing crop a paradigm shift in water management in India by
productivity i.e., producing more crops or value per amalgamating two main organisations, namely central
volume of water used. Irrigation of high-value crops water commission (CWC) and central ground water
is important in this context. Besides, there are several board (CGWB), and devise water governance both
other measures including use of technology to increase at the national and State-level. It proposed integrated
water use efficiency. It is important to understand the water management interventions suiting the contour
real potential of reducing water losses to avoid devising of demand management and sustainability as the
costly and ineffective demand management strategies. central focus, and emphasised equity in access to water,
A large proportion of the water abstracted in transparency, and a national water framework law. Each
irrigation systems will return to the system. The quality State was expected to redesign their water management
and the timing of the return flow is important regarding and water governance initiatives following this national
the usefulness of the water for the downstream users. guideline.
Irrigation systems, and more notoriously industrial
Resource augmentation: strengthening the supply
users, often return polluted water to the system, side
effectively meaning that the water is not available for There are five broad areas that warrant attention to
further use. In this case, an improvement in irrigation improve the water resource base and strengthen the
efficiency, whereby a smaller volume of water is supply side. Strategies for achieving each of these
abstracted and an even smaller volume returned, will activities and proposed action plans are spelt out here:
mean a better quality of water is available for the next
Suitable and equitable water allocation for all
downstream user. If these systems are adopted, the
water use sectors and fulfilment of basic water
pesticide pollution in the downstream water bodies can requirements
be controlled.
Strategies. Assessment of water resources of the
Future Development Framework, Strategy and
Action Plan State (updating the 1974 PWD report on water
The future vision of water management in Kerala resources); Prioritisation of water use for various
should be to develop the State as a water secure sectors, i.e., agriculture, domestic, industry and
State. The framework proposed here is expected to conservation of ecosystem; and setting up of water-use
lay the foundation to accomplish such a task. Water criteria/ proportions for the various sectors from the
78 | KERALA DEVELOPMENT REPORT 2021

panchayath through watersheds/ river basin to State- Creation of new water conservation and storage
level and promotion of conjunctive use of surface and structures
groundwater (especially shallow groundwater). Strategies. Exploration of the possibility for new
Activities and action plan. Preparation of inventory of structures on a priority basis in the river basins; and
water resources (both surface water and groundwater) Promotion of water conservation.
in all the river basins; updating and strengthening the Activities and action plan. Investigation in the river
information on water requirements of various sectors basins to locate suitable sites and feasibility studies
and forecasting of future needs and trends; development (may be taken up in the Chalakkudi river basin to
of water resource potential and management plan for begin with); exploration of paleo channels, ox-bow
block panchayats and setting up guidelines for water lakes and abandoned channels to promote as water
allocation to various sectors; allocation of water for storage structures; taking of rainwater harvesting and
the various sectors under the framework of river basin recharge pits and percolation tanks in suitable areas on a
management plan, including ecosystem services; and watershed basis; implementation of open well recharge
supplementation of groundwater-based irrigation in treatments in all households; adoption of suitable erosion
surface water irrigated areas during the lean season. control measures like contour bunds, terracing, etc.
Improving the water use/management efficiency
for soil and water conservation; Promotion of rooftop
rainwater harvesting at household and institutional-
Strategies. Renovation of existing water resources
levels; construction of check dams, barrages, dykes, and
infrastructures; protection of water recharging
VCBs in rivers and streams, wherever it is feasible; and
ecosystems and natural resources; replication of success
construction of ponds and tanks in ideal locations; and
stories of supply and water management to other
development of abandoned quarries as water harvesting
feasible areas; and precision water management.
and storage structures.
Activities and action plan. Survey and preparation of Management of water quality problems for
plan for rehabilitation of water sources and waterways, improving the water supply
including development and conservation plans;
Strategies. Improvement and sustenance of water
repair and improvement of distribution systems and
quality.
control structures in order to reduce water losses and
ensure desired water delivery; periodic de-silting of Activities and action plan. Monitoring of water
reservoirs for increasing the water storage capacity; quality problems with special reference to each basin
renovation of the dilapidated irrigation ponds/tanks, and preparation of a protection plan to arrest water
check dams, Thurangam and other water storage/ pollution; development of cost-effective materials for
diversion/distribution structures; empowerment of water purification, especially using nanotechnology;
community organisations in taking care (planning, surveillance and monitoring of water quality through
implementation and monitoring) of common property public participation using sensor-based devices for
resources; prevention of encroachments and protection water quality testing; development of proper sanitation
of riverbanks by eco-friendly measures; protection of plans and sewage treatment plants; and control of non-
water recharging ecosystems like forests, wetlands, point source pollution.
paddy fields, mangroves, and sacred groves; prevention Demand management in water
of uncontrolled mining of sand, granite, clay and soil; Water use sectors in Kerala are broadly grouped into
and replication of successful models to gear up the five categories: (a) Domestic, including drinking water,
water conservation programs in the State. (b) Irrigation, (c) Industry, (d) Hydropower, and (e)
Linkage of master plans of departments with river Ecosystem services, including wildlife needs. Strategies
basin plan for holistic IWRM and proposed action plans are indicated below.
Strategies. Preparation of the integrated river basin Domestic including drinking water: Providing 100
management plan for all the 44 river basins per cent safe drinking water to all
Activities and action plan. Formation of required Strategies. Identification and prioritisation of
institutions; and Integration of the individual plans problematic areas; reduction of water losses in
available in the line departments with river basin plans distribution; and development of water resources for
by ensuring stakeholders’ participation. augmenting the distribution of potable water
 WATER RESOURCES | 79

Activities and action Plan. Preparation of plan and water demand by proper planning viz., early sowing of
implementation of domestic water supply schemes in variety, uniform way of planting in group approach,
problematic areas on a priority basis; setting up of more laser land levelling and mulching on a watershed basis.
community and village water supply systems by using Industry
both surface and groundwater; setting up of more water The goal is to meet the industrial demand of 1200 cubic
treatment plants for ensuring safe drinking water; and mm by 2022 by achieving an increase of around 18 per
development of GIS-based distribution network along cent over the current requirement.
with sensors for improving the efficiency. Strategies. Defining the rights and responsibilities of
Increasing the gross irrigated area the industries on water usage; adoption of the principle
The objective should be to increase the gross irrigated of 3 R’s (Reduce, Recycle and Reuse) in water use;
area in the State from the current-level of 17.9 per cent prevention of the pollutant load in the effluents for
of the gross cultivated area to 31 per cent. environmental protection; locational analysis for new
industries with respect to water resources.
Strategies. Preparation of block-level and panchayat-
level irrigation plan by considering all the existing Activities and action plan. Preparation of guidelines
schemes and possible new schemes; Improvement defining water rights and responsibilities of various
of the water use efficiency for maximising the industrial sectors; appropriate pricing of water for
water productivity; and Reorientation of irrigation industrial use to improve the efficiency; recycling
management through decentralisation. of used water for industrial purposes; installation
of advanced effluent treatment plants (ETP) in all
Activities and action plan. Preparation of framework
the industries and their periodic monitoring of the
for district-level strategies for increasing the irrigated
same by Pollution Control Board; and evaluation of
area; assessment of the irrigation water availability
water availability before starting new industries and
and demand based on the cropping pattern of the
concurrent monitoring of water use, water availability
panchayat, considering crop water requirements and
and water quality.
irrigation recommendation for the crops in different
Hydropower: meeting the energy demand of the
agroecological units of the State; completion of all
State
pending major/medium/minor irrigation structures;
Strategies. Creation of new micro hydel schemes;
promotion of minor irrigation projects/schemes;
storage of enough water for generation of power
creation of new storage structures such as ponds, VCBs,
considering the increasing energy demand under
barrages and check dams where feasible; recharging of
changing climate scenario.
ground water in the existing overexploited and critical
Activities and action plan. Investigation and
areas; creation of more water diversion structures and
construction of new micro hydel schemes in all
development of springs in highland and midland areas,
possible locations; Periodic de-silting for enhancement
and more lift irrigation schemes in lowland areas;
of the storage since siltation is a major problem in
irrigation of high value horticultural crops such as
the reservoirs; and improvement in the use efficiency
pepper, cardamom, vegetables, banana, etc. to attain
of existing hydropower systems with advanced
maximum productivity; increased involvement of
technologies.
Water User Associations (WUAs) through Participatory
Ecosystem services
Irrigation Management (PIM) for enhancing the
The objective is to ensure maintenance of ecosystem
physical access of each individual plot to water by
functions, provisioning of water for wildlife, biodiversity
which more cultivable area may be brought under
conservation and sustainability of water resources.
assured irrigation; promotion of extension activities
relating to water harvesting, water management and Strategies. Protection and conservation of ecosystem
crop alignment for farmers and grassroots-level field services, such as forests, wetlands and mangroves;
functionaries; improvement of drainage facilities in improvement of water availability in wild habitats;
farm area; enhancement of water utilisation capacity sustenance of environmental flow in rivers; and
of irrigation projects; enhancement of the adoption of limitation of overexploitation of groundwater.
advanced micro irrigation and water saving technologies, Activities and action Plan. Protection and forestation
precision farming, polyhouse farming and hydroponics of various forest ecosystems; identification of water
to achieve more crop per drop; reduction of irrigation sources within wild habitats and creation of necessary
80 | KERALA DEVELOPMENT REPORT 2021

storage structures within forest areas for meeting the and consumption technologies. The adoption and use
water needs of wildlife; inclusion of more wetlands of green technologies involve the use of environmental
under the purview of Ramsar sites and implementation technologies for monitoring and assessment, pollution
of Management Action Plan (MAP) of wetlands and prevention and control, resource and energy recovery,
mitigation of climate change and remediation and
Ramsar sites; promotion of livelihood support system
restoration.
for wetland conservation, including inventorying and
To mitigate water pollution, green technologies are
evaluation of the ecosystem services; determination of
used in a broad range of scales from households to the
required environmental flow in the rivers of Kerala;
industry-level. Green technology covers treatment of
and enforcement of legislative measures to check
rainwater, storm water treatment, artificial groundwater
overexploitation of groundwater.
recharge, wastewater reuse, industrial waste water
Water Related Disaster Management treatment, construction of wetlands for wastewater
Flood, sea surge, drought and landslides are common treatment, biological treatment and nutrient removal,
water-related disasters affecting Kerala. Landslides occur technology for nitrogen removal and water recycling
during every monsoon period in the hilly tracts. The and pollutant removal by biomass-based adsorbents.
post-flood Kuttanad package of Kerala State Planning Green technology can be used in Kerala for the
Board proposed a new approach to water management treatment of wastewater, industrial effluents, and
and other related activities including livelihoods. The sewage. Application of technology is also required for
interventions proposed under this package provides increasing efficiency of water use in irrigation, water-
important lesson to develop Kerala, and particularly saving technology at the household-level, and sewage
to make Kuttanad flood-resilient. The prime objective management.
of water-related disaster management programme is to Application of Geomatics is necessary to record
ensure effective preparedness as well as mitigation from water distribution systems especially in the urban
water related disasters. areas, where underground sewage drainage lines and
Strategies. To introduce an efficient flood, drought and drinking water pipes are placed side by side. To combat
land slide protection system in the context of changing loss of water during transmission and to control
climate scenarios. contamination, regular monitoring using GIS software
will be useful. Digitisation of all drainage system will
Activities and action Plan. Formulation of the flood,
also be useful for storm water management and urban
drought, landslide protection, and rehabilitation master
flood control.
plans employing both structural and non-structural
Learning lessons from Unique Initiatives on
measures; real-time forecast for disasters by preparing
Watershed Management
drought and flood frequency forecasting risk maps; Kerala has the distinction to have various inventiveness
development of a preparatory process for protection in different fields. New ideas are appreciated and
and rehabilitation operations prior, during and after people are enterprising enough to adopt them. Water
disasters; vulnerability mapping at different scales management is one such sector, where a number of
ranging from panchayat to river basin; and organisation initiatives undertaken by the Government, science and
of training programmes to all the stakeholders for technology institutes, and local self-Governments have
protection and rehabilitation. produced significant results, particularly in the sphere
Technology of watershed management. Many of these programmes
Technology has an important role in sustainable water provide important lessons, which through proper
management. At present, most of the technologies are scientific analysis may be replicated, upscaled, and
used for treatments and distribution of water, disposal dovetailed into the larger planning process of the State.
of wastewater, sewage treatment and treatment of The first successful and complete watershed master
industrial effluents. In most cases, these technologies plan was prepared by Perambra block panchayat in
are energy-consuming and adversely impact our Kozhikode in 2000. In 2004, a model watershed master
environment. Green technologies are being promoted plan for Thirurangadi Block Panchayat in Malappuram
in various countries to ensure human well-being as was prepared by the Centre for Earth Science Studies.
well as to preserve the environment. According to the There were successful water harvesting mechanisms
United Nations Environment Programme, developed in the Film Video Park, KINFRA at
Green technology covers a broad area of production Kazhakuttam, Chadayamangalm Block under
 WATER RESOURCES | 81

Hariyali projects, and similar initiatives in Palakkad. of industries and commercial establishments, and
With assistance from CWRDM, Perumanna Gram utility of canals and institution building. The pilot
Panchayat in Kozhikode took the lead becoming the intervention project had encouraging results. The
first panchayat to declare a water policy on the lines of CDD (CDD Society is a not-for-profit organisation,
the State Government’s water policy declared in 2008. registered in 2005, that innovates, demonstrates and
Kerala State Land Use Board also initiated watershed disseminates decentralised nature-based solutions for the
management/water conservation projects in different conservation, collection, treatment and reuse of water
parts of the State. resources and management of sanitation facilities) has
Recent initiatives undertaken by the Nedumangad proposed an integrated approach to the rejuvenation of
Block Panchayat and the Kattakkada and Taliparamba the Municipal Colony Canal and a plan has been drawn
assembly constituencies to prepare watershed up. Several lessons can be learnt from this initiative. The
management plan are noteworthy attempts. It scaling up of the programme and its sustainability is a
addresses several challenging issues and provides a question for the future. The urban water bodies infested
model programme at the block panchayat-level. Kerala with ‘urban river syndrome’ can consider initiating
Institute of Local Administration (KILA) and Haritha such programmes and set up appropriate community
Keralam Mission are instrumental in executing several institutions.
watershed management projects at the panchayat- River Rejuvenation
level. Attempts are taken to document some of the Kerala has accorded high priority on river restoration
best practices. There are also initiatives in Kannur and as part of Haritha Kerala Mission programme. The
Wayanad districts. campaign titled “Now, Let Me Flow” covered both
Detailed scientific evaluation of all these projects urban and rural areas. Around 2035 km length of rivers
is necessary to learn the lessons. All these projects was covered under 739 segments. Around 62 per cent
are successful from the participation point of view. of all segments were less than 2 km in length. This
However, some questions like the quantum of water programme covered all the 14 district and 1034 LSGIs.
additionally harvested, the status of soil moisture, Over 1.62 lakh volunteers participated in this campaign.
accrued benefit due to enhanced water resources and Restoration plans and field-level activities were
the process and method of equitable distribution of developed in collaboration with LSGIs. As a campaign
additional water warrant more discussion. to generate awareness and people’s participation, this
Lessons from the Alappuzha Canal Cleaning Project programme was successful.
The Alappuzha town received international acclaim However, it is now important to scientifically
due to its success in decentralised waste management. investigate the river stretches including hydrological
The Clean Home Clean City campaign introduced in and geomorphological characteristics to devise lasting
2012 was a successful intervention to tackle the solid solutions. Proper documentation in cadastral scale map
waste crisis involving students and local people. This and digitisation of those maps are necessary for planning
was followed by a programme of cleaning canals in purposes. It is important to link such initiatives with
the Alappuzha town concentrating on the Vadai canal river bank mapping and sand auditing programmes.
and the Commercial Canal. The Indian Institute of River Bank Mapping and Sand Auditing
Technology (IIT) Mumbai, College of Engineering, At the instance of the Government of Kerala, the
Kuttanad, and KILA extended support. programme on river bank mapping and sand auditing
The programme began with a detailed inventory began in 2012. The objective of this programme was
of the canals, the status of waste generated at to map bank characteristics of all major rivers in the
households, water quality analysis, waste management State and assess river bed deposits in order to regulate
in commercial and industrial establishments, and pilot sand mining from the river beds. Data have been
interventions. Recommendations following this analysis generated at the cadastral scale. So far, 20 rivers have
covered technical solutions for canal network, solid been covered. These data can be used for the river
waste management, liquid waste management, water rejuvenation programme, which is one of the activities
quality and public health, environmental regulation under river basin management.
82 | KERALA DEVELOPMENT REPORT 2021

Chapter 5
Industry: A New Way Forward
Structure and Growth of the Industrial 18. They include workers in the factory sector, estimated
Sector at 3.1 lakh persons in 2017-18. The factory sector is
There has been a steady increase in the size of Kerala’s almost identical with the organised manufacturing
manufacturing sector, in value terms, especially over the sector. It comprises factories that employ more than
last four years. More importantly, Kerala has achieved 10 workers and operate with the aid of electric power
substantial progress with respect to modernising and (as well as factories that employ more than 20 workers
diversifying its industrial sector. without the aid of electric power). The Annual Survey of
The manufacturing sector in Kerala accounted Industries (ASI) published by the Government of India’s
for 12.8 per cent of Kerala’s Gross State Value Added Ministry of Statistics and Programme Implementation
(GSVA) (at constant 2011-12 prices) and 11.8 per (MOSPI) is the main source of data on the factory
cent of total employment in the State in 2017-18.9 In sector. In 2017-18, 3.1 lakh factory workers in Kerala
comparison, the manufacturing sector accounted for were employed in 7649 factories across the State (Table
18.0 per cent of India’s and 29.3 per cent of China’s 5.1, 5.2 and 5.3).
GDP in 2017.10 The share of manufacturing in Kerala’s Workers in traditional industries, of which coir,
GSVA increased from 9.8 per cent in 2014-15 to 13.2 cashew and handloom are a major segment, form a
per cent in 2018-19. According to data from Annual substantial share of Kerala’s manufacturing workforce.
Survey of Industries, Kerala’s share in gross value added In fact, a few resources-based industries accounted
by India’s factory sector increased from 1.2 per cent in for 42.3 per cent or 1.35 lakh workers out of the 3.1
2014-15 to 1.5 per cent in 2017-18 (Figure 5.1). lakh workers in Kerala’s factory sector (in 2016-17).
According to the Periodic Labour Force Survey These industries include: food products and beverages
(PLFS) data, the manufacturing sector in Kerala (cashew processing is a major component of this),
employed 15 lakh workers (who comprised 12.8 per beedi manufacturing, and textiles (which include coir
cent of the State’s total workforce of 127 lakh) in 2017- processing and handlooms).

Figure 5.1 Manufacturing’s Share in Kerala’s GSVA and Kerala’s Share in GVA by India’s factory sector
Source: Directorate of Economics and Statistics and Annual Survey of Industries

Employment data based on the Periodic Labour Force Survey (PLFS) carried out by India’s Central Statistical Office in 2017-18.
9

Manufacturing as a share of India’s GVA at basic prices in 2017-18. The Chinese share is obtained from the World Bank’s
10

World Development Indicators. Available at: http://data.worldbank.org/indicator.

 INDUSTRIAL DEVELOPMENT | 83

It needs to be noted that there has been a substantial 12, but rose impressively to 1.32 per cent by 2017-
reduction over the years in the size of the workforce 18. This implies that investment in the factory sector
engaged in traditional industries in Kerala. This is in Kerala has grown faster than the corresponding
because of structural problems faced by some of these national average in the years after 2011-12. Faster rate
industries (such as cashew) as well as the withdrawal of investment has resulted in gains in output and value
of the younger generation of educated workers from added growth for Kerala. With respect to gross value
industries characterised by low wages. Tables 5.4 and added by India’s factory sector, Kerala’s share which was
5.5 gives the structure of manufacturing sector in only 1.10 per cent in 2011-12, rose to 1.44 per cent
Kerala. in 2015-16, and rose still further to 1.51 per cent by
At the same time, it is worth highlighting that 2017-18 (Table 5.2).
a new set of modern industries is growing in size in In 2011-12, fixed capital per factory worker was Rs
Kerala. The top industries in Kerala with respect to 3.9 lakh in Kerala while the corresponding national
value added are chemicals, refined petroleum products, average was Rs 14.5 lakh (both in current prices). Thus
rubber and plastic products, electronic products, and fixed capital invested per factory worker in Kerala was
pharmaceuticals and medicinal botanical products. only 27.1 per cent of the national average in 2011-12.
A More Modern Industrial Sector However, by 2017-18, fixed capital per factory worker
With the above-referred structural changes, Kerala’s in Kerala improved considerably to reach 66.4 per cent
factory sector has become more modern and of the national-level (Table 5.3).
technologically more advanced. With respect to the With the infusion of industrial investments into
cumulative investment in fixed capital in India’s factory the State, Kerala’s factory sector has achieved greater
sector, Kerala’s share was only 0.79 per cent in 2011- competitiveness. With respect to emoluments received

Table 5.1 Key aspects of the factory sector, Kerala and India, 2017-18
Kerala India Kerala’s share in India, in %
Number of factories 7,649 2,37,684 3.22
Number of factory workers 3,10,326 1,56,14,598 1.99
Fixed capital, in Rs lakh 43,466 32,93,410 1.32
Gross Value Added, in Rs lakh 22,342 14,74,854 1.51
Source: Annual Survey of Industries, as reported in Thomas (2020)
Table 5.2 Key aspects of the factory sector, Kerala’s share in India, 2011-12 to 2017-18
2011-12 2015-16 2017-18
Number of factories 3.23 3.25 3.22
Number of factory workers 2.93 2.37 1.99
Fixed capital 0.79 1.37 1.32
Gross Value Added 1.10 1.44 1.51
Source: Annual Survey of Industries, as reported in Thomas (2020)
Table 5.3 Key ratios related to the factory sector, Kerala and India, 2011-12 to 2017-18
Fixed capital per worker in Rs lakh
Kerala India Ratio for Kerala as a share of the ratio for
India, in %
2011-12 3.9 14.5 27.1
2015-16 11.3 19.6 57.7
2017-18 14.0 21.1 66.4
Gross value added per employee in Rs lakh
Kerala India Ratio for Kerala as a share of the ratio for
India, in %
2011-12 2.7 7.3 37.7
2015-16 5.4 8.9 60.6
2017-18 7.2 9.4 76.2
84 | KERALA DEVELOPMENT REPORT 2021

Emoluments (annual) per employee in Rs lakh

Kerala India Ratio for Kerala as a share of the ratio for
India, in %
2011-12 1.1 1.6 66.8
2015-16 2.0 2.4 84.1
2017-18 2.3 2.7 87.6
Fixed capital per factory in Rs lakh
Kerala India Ratio for Kerala as a share of the ratio for
India, in %
2011-12 219.9 896.1 24.5
2015-16 507.2 1,205.3 42.1
2017-18 568.3 1,385.6 41.0
Source: Annual Survey of Industries, as reported in Thomas (2020)
Table 5.4 Structure and relative size with respect to employment and value added, shares of industries in total
factory sector of Kerala and shares of Kerala’s industries in total by the respective industries in India, 2016-17
Shares in Kerala’s total Kerala’s Shares in India
factory sector
Industries Employment Value Employment Value
added added
Food Products and beverages (10, 11) 30.5 11.9 5.3 1.4
Tobacco products (12) 4.8 0.3 3.3 0.2
Textiles (13) 6.9 2.9 1.4 0.6
Garments (14) 2.6 1.5 0.7 0.7
Footwear (15) 2.7 1.6 2.2 2.0
Wood and wood products (16) 2.6 0.9 9.0 2.8
Paper and paper products (17) 1.1 0.4 1.4 0.3
Printing and reproduction of recorded media (18) 1.9 4.8 3.8 5.9
Refined petroleum products (19) 4.2 12.1 8.7 1.0
Chemical products and pharmaceuticals (20, 21) 6.6 19.2 1.4 1.2
Rubber and plastics products (22) 7.2 10.5 3.3 2.7
Other non-metallic mineral products (23) 6.0 4.7 1.8 1.0
Basic metals (24) 1.5 1.2 0.5 0.2
Fabricated metal products (25) 1.5 0.7 0.7 0.2
Electronic, computer and optical Products (26) 4.2 5.2 6.0 2.3
Electrical Equipment (27) 1.6 1.6 1.0 0.4
Machinery and equipment (28) 0.8 0.7 0.3 0.1
Motor vehicles (29) 0.1 0.1 0.0 0.0
Other transport equipment (ships and boats)(30) 1.6 3.5 1.6 1.5
Furniture, jewellery, medical and dental 2.4 10.0 1.8 5.6
instruments, toys (31, 32)
All Industries 100 100 2.1 1.0
Note: Figures in brackets refer to the divisions (in two digits) to which each of these industries belong according to
National Industrial Classification (NIC) – 2008.
Source: Annual Survey of Industries data on persons engaged and gross value added
per factory worker as well as labour productivity, Kerala received by an average factory employee in the State was
has lagged behind the corresponding national averages. 66.8 per cent of the salary received by an average factory
As already mentioned, this is partly because of the employee in the country as a whole. At the same time,
continuing dominance of traditional industries in total gross value added per factory worker in Kerala was only
factory employment in Kerala. In 2011-12, the salary 37.7 per cent of the corresponding national figure (in
 INDUSTRIAL DEVELOPMENT | 85

2011-12). In other words, in 2011-12, Kerala’s factory furniture, jewellery and medical instruments has been
sector had lagged behind the corresponding national much faster in Kerala compared to the corresponding
averages much more with respect to labour productivity national averages (according to ASI data).
than with respect to emoluments per worker (Table 5.3; Kerala has a number of State and Central public
also see Thomas 2020). sector units engaged in diverse areas of manufacturing,
However, by 2017-18, there was a substantial mainly chemicals, engineering and electronics. Some
improvement for Kerala’s factory sector both with of the PSUs in the State, such as Travancore Cochin
respect to labour productivity and emoluments per Chemicals (TCC) and Keltron, have been pioneers
worker. These figures for Kerala were 76.2 per cent and in the country in their respective fields of production
87.6 per cent respectively of the corresponding Indian (caustic soda and electronics respectively). However, the
averages (by 2017-18) (Table 5.3; also see Thomas performance of many of the PSUs in Kerala has been
2020). rather lacklustre in recent times. A major highlight of
Turnaround in the Performance of Public Sector the improved performance of Kerala’s manufacturing
Units sector from 2016-17 onwards is a turnaround in the
The progress that Kerala’s industrial sector has achieved performance of some of these PSUs, engaged mainly in
with respect to modernisation over the last few years has the production of chemicals and electrical machinery.
been partly on account of the improved performance Kerala Minerals and Metals Limited (KMML),
of public sector units, especially State public sector Travancore Titanium Products (TTP) Limited,
units, in Kerala. Bharat Petroleum Corporation Travancore-Cochin Chemicals Limited (TCC) and
Limited’s (BPCL)-Kochi Refinery has been undergoing Transformers and Electricals Kerala (TELK) Limited
a major expansion of its refining and petrochemical were some of the major PSUs, which sharply improved
production capabilities and this holds great promise for their performance from 2016-17 onwards. All the
the chemical and allied industries in Kerala. Between above-referred PSUs except KMML had registered losses
2011-12 and 2016-17, the value addition by refined in 2015-16. However, in a significant turnaround, all
petroleum products increased by eight times in Kerala. these four State PSUs made substantial profits in 2016-
In fact, the growth of value added by manufacturing 17. Kerala State Drugs and Pharmaceuticals (KSDP)
sector as a whole as well a number of industries Limited, which turned profitable by 2017-18, has been
including chemicals, garments, pharmaceuticals, going through a significant phase of modernisation and

Figure 5.2 Chemicals and Pharmaceutical industries in Kerala, Index of Production (Gross Value Added) (with
index for 2011-12 = 100) and share of Kerala in value added by these industries in India
Source: Annual Survey of Industries
86 | KERALA DEVELOPMENT REPORT 2021

capacity expansion. Figure 5.2 shows that, by 2015-16, share in India’s population (which was 2.76 per cent
value added in chemicals and pharmaceutical industries in 2011). According to the data on unincorporated
in Kerala had declined to 73 per cent only of the non-agricultural enterprises (excluding construction)
corresponding value in 2011-12, However, in 2016- in India from the 73rd round of the National Sample
17, value added by these industries improved sharply to Survey (NSS), there were 23.8 lakh unincorporated
187 per cent of the 2011-12 level (Figure 5.2; also see non-agricultural enterprises (excluding construction)
Thomas 2020). in Kerala in 2015-16 employing a total of 44.9 lakh
New Opportunities in Modern Industries workers. This may be compared to the size of the non-
Another positive aspect has been the emergence of a few agricultural workforce in Kerala, which was 105.7 lakh
new modern industries in the State, especially in the in 2017-18, according to the latest PLFS (the size of
private sector. The number of workers engaged in the Kerala’s workforce was 127 lakhs in that year) (Table
manufacture of electronic components in Kerala rose 5.6; also see Thomas 2020).
from 2,930 only in 2012-13 to 10,263 by 2016-17 (Table Unincorporated non-agricultural enterprises in
5.5). Workers engaged in the manufacture of medical and Kerala comprised 17.9 lakh own-account enterprises
dental instruments and supplies increased from 1,023 (OAEs) with a total workforce of 21.2 lakh and 5.9
only in 2012-13 to 3,207 in 2016-17 (Table 5.5). lakh establishments with a total workforce of 23.7 lakh.
A highlight of this positive transformation has been OAEs are enterprises that run without any hired worker
the emergence of a class of Kerala-based entrepreneurs employed on a regular basis while establishments
who have been successful in setting up a number employ at least one hired worker on a regular basis (see
of technologically advanced enterprises. Some of Table 5.6; also see Thomas 2020).
these units in areas such as medical equipment, In 2015-16, Kerala’s share in India with respect
spice extraction, and food processing have achieved to unincorporated non-agricultural enterprises was
international recognition for the quality of the products 3.8 per cent. If we consider only the establishments,
they produce (such as bold bags or oleoresins). In Kerala’s share in India was 5.9 per cent (see Table 5.6;
recent years, Kerala has emerged as a highly favourable also see Thomas 2020).
location for technology startups, with the Kerala Unincorporated non-agricultural enterprises in
Startup Mission and other institutions playing an Kerala comprised 5.5 lakh manufacturing enterprises,
important facilitative role. 7.4 lakh trading enterprises, and 10.9 lakh enterprises
Kerala’s Strengths in Micro and Small Industries in other services activities (in 2015-16). Employment in
Kerala’s share in India with respect to micro, small, and unincorporated manufacturing enterprises in Kerala was
medium enterprises (MSME) is bigger than Kerala’s 10.1 lakh, which was 2.8 per cent of the corresponding
Table 5.5 Employment in selected major industries, Kerala and India, 2016-17 in numbers
Industries Kerala India Kerala’s share in
India
Rubber products (221) 15,506 2,10,679 7.4
Refined petroleum products (192) 13,203 1,30,938 10.1
Chemical products (201, 202) 11,036 7,61,630 1.4
Manu of electronic components (261) 10,263 83,890 12.2
Pharmaceuticals, medicinal chemical and botanical 10,154 6,79,891 1.5
products (210)
Footwear (152) 8,498 2,65,036 3.2
Garments (141) 8,384 7,78,319 1.1
Plastic products (222) 7,450 4,89,824 1.5
Printing and services related to printing (181) 6,177 1,60,407 3.9
Ships and boats (301) 4,320 17,967 24.0
Electric motors, transformers and generators (271) 3,548 2,00,804 1.8
Medical and dental instruments and supplies (325) 3,207 60,762 5.3
Furniture (310) 3,151 70,189 4.5
Source: Annual Survey of Industries data
 INDUSTRIAL DEVELOPMENT | 87

employment at the national-level (according to PLFS 2021). While 15,858 of these enterprises were in the
data, total manufacturing employment in Kerala in services sector, more than 33,000 new enterprises were
2017-18 was 15 lakh). started in the manufacturing sector (between 2016-17
In 2015-16, annual gross value added (GVA) per to 2020-21). Of these, the major investment had been
worker in unincorporated OAEs and establishments in into agro and food processing industries (12,699 new
Kerala were Rs 1.16 lakh and Rs 7.60 lakh respectively. enterprises), followed by textiles and garments (8339
The corresponding national averages were Rs 0.95 new enterprises) and light engineering industries (7104
lakh and Rs 6.4 lakh respectively. Average annual new enterprises) (Table 5.7).
emoluments received hired worker was Rs 1.26 lakh
Sources of Growth
in Kerala compared to the national average of Rs 0.87
lakh (see Table 5.6; also see Thomas 2020). I. Agro and Food-Processing Industries
According to data from the Directorate of Industries As the Approach Paper to the Thirteenth Five-Year Plan
and Commerce, Government of Kerala, 64,879 new notes, there are immense opportunities in Kerala for
MSME units started operations in Kerala during the the development of food-and agro-based industries,
five years from 2016-17 to 2020-21 (up to January 31, particularly industries that have deep linkages with

Table 5.6 Unincorporated non-agricultural enterprises (excluding construction) and workers, Kerala and India,
2015-16, in lakh numbers
In lakh numbers Kerala’s share in India,
Kerala India in %
Enterprises Workers Enterprises Workers Enterprises Workers
OAEs 17.9 21.2 533.6 690.8 3.3 3.1
Establishments 5.9 23.7 100.3 421.9 5.9 5.6
Total 23.8 44.9 633.9 1,112.7 3.8 4.0
Enterprises by sector
Manufacturing 5.5 10.1 196.6 360.4 2.8 2.8
Trading 7.4 14.5 230.4 387.4 3.2 3.7
Other Services 10.9 20.3 206.9 364.8 5.3 5.6
Total 23.8 44.9 633.9 1,112.7 3.8 4.0
Source: 73rd round of the National Sample Survey (NSS) on unincorporated non-agricultural enterprises (excluding
construction), July 2015-June 2016
Table 5.7 Year-wise details of new MSME units started in Kerala under each subsector in number
Name of subsector 2016-17 2017-18 2018-19 2019-20 2020-21 Total
Agro and food-based 2,395 2,553 2,712 2,582 2,457 12,699
Textiles and farments 1,695 1,947 1,858 1,904 935 8,339
General /mechanical/light engineering 1,606 2,001 1,533 1,334 630 7,104
Service activities 3,057 3,679 3,259 4,036 1,827 15,858
Wood products 775 871 644 5,32 322 3,144
Cement products 344 469 329 3,09 149 1,600
Printing and allied 322 392 348 2,80 132 1,474
Paper products 172 163 192 1,88 144 859
Information technology 263 316 294 2,40 125 1,238
Others 3,098 3,077 2,657 2,290 1,445 12,564
Total 13,727 15,468 13,826 13,695 8,163 64,879
Note: Data for 2020-21 is up to January 31, 2021
Source: Directorate of Industries and Commerce
88 | KERALA DEVELOPMENT REPORT 2021

Kerala’s agricultural and natural resources. The potential industries, especially small and medium enterprises,
for the growth of agro-based industries in Kerala find it difficult to deal with the large numbers of small
arises on account of both supply and demand factors. farmers spread across the State when they have to
On the supply side, Kerala produces a rich variety of procure agricultural products as raw material for their
agricultural products, including rice, coconut, rubber, industries.
pepper, cardamom, banana, and pineapple. The State While Kerala is known to be a major producer of a
has enormous forest and marine resources. rich variety of agricultural products, very little of the
On the demand side, a relatively large market for processing of these products occurs within the State. At
food and agro-based products exists within Kerala. the same time, the existing agro-processing industries
Average per capita consumption expenditure in rural in Kerala suffer due to shortage of raw material or
Kerala is almost twice as large as the average per capita source raw material from outside the State. Some of
consumption expenditure in rural India (in 2011-12, the jackfruit-processing and spices-extraction units in
according to National Sample Survey data). However, Kerala have pointed to the difficulty in collecting the
there are also important challenges for the growth of raw material (jackfruit or spices) from Kerala although
agro and food-based industries in Kerala. Some of these the State is a large producer of these products (Thomas
challenges are discussed below. 2020).
Revival of agricultural production – critical for the Kerala is a major producer of pineapple (especially
growth of agro-based industries Ernakulam, Kottayam and Idukki districts).
A sharp increase in the production (as well as Vazhakkulam in Ernakulam district has emerged
productivity in cultivation) of agricultural products as a leading centre in the country in the trading of
such as coconut and spices is critical for the growth pineapple. Despite the easy availability of pineapple
of agro and food-processing industries in Kerala. In within the State, there is very little activity in Kerala
fact, the establishment of processing industries, which in pineapple processing and value addition. This is a
will help to ensure higher returns to farmers for their severe loss of opportunity for the State, as value-added
agricultural products, will be an essential component products from pineapple are likely to attract substantial
of any plan to revive agricultural production in Kerala. markets within the country and outside (including in
Evolving new models for procurement of East Asian countries and countries in the Gulf region).
agricultural products Pineapple farmers in Kerala point out that processing
A distinctive feature of the agricultural sector in pineapple within the State will help them achieve
Kerala is the role played by small farmers who carry higher and more stable prices for pineapple.11,12
out cultivation in homestead or other small plots of Processing of meat, milk, and egg
land. At the same time, however, the smallness in size Kerala is a major consumer of meat, milk, and egg
poses a challenge with respect to the collection and products. The State can do much more in generating
procurement of agricultural products, both for farmers employment opportunities in these sectors based on
and for the processing industries (Thomas 2020). the large domestic demand. As of now, Kerala depends
Given the absence of a sufficient network for the on imports to meet a large share of its requirements
procurement of agricultural products, farmers of several of meat, milk, and egg products. There is very little
agricultural products often complain that they do not processing of these products within the State. Even
get good prices for their products (especially products facilities such as modern slaughterhouses are relatively
such as jack fruit, which do not have much commercial scarce in the State. Setting up of industrial units and
value within Kerala). At the same time, agro-processing modern facilities for the processing and value addition
11
Vazhakulam Agro And Fruit Processing Company Limited (VAFPCL), which is owned jointly by Kerala State Government
(70 per cent) and farmers in the region (30 per cent of the total shares). has been set up with the objective of processing and
value addition of fruits including pineapple, mangoes, and ginger. The company is located in Vazhakkulam in Ernakulam
district, is well connected to Kochi International Airport and the Kochi Sea Port by road. VAFPCL has facilities for processing
(including juice extraction and concentration and Aseptic filling of fruit juices such as pineapple and mango) of fruits. The
factory has facilities for production of juices in Tetra Pak packages. VAFPCL also has an Integrated pack house, which has
facilities for pre-cooling and packing of fresh pineapple and other fruits (which can be further exported). VAFPCL has the
potential to emerge as a major player in the processing of fruits and vegetables produced in Kerala (and also Tamil Nadu),
especially in the Ernakulum, Idukki and Kottayam districts.
12
Thomas (2020).
 INDUSTRIAL DEVELOPMENT | 89

of meat, milk, and egg will help to satisfy the demand some distinct advantages, given its proximity to BPCL-
for these (value-added) products within the State and Kochi Refinery, Petronet LNG Limited, chemical units
also aid employment generation in this sector. This will such as Travancore Cochin Limited (TCC), and port
also encourage more farmers in Kerala to take up animal facilities. There is potential to begin the manufacture of
husbandry and poultry farming, and also to adopt plastics, polymers, fibres, and personal and home care
modern methods of production and value addition in products in the private sector.
these economic activities. Petrochemicals, specialty chemicals, biochemicals,
As in other parts of India, the facilities for storage and pharmaceuticals
and transport of fruits, vegetables and other agro-based Kerala has bright prospects in the areas of petrochemicals,
products from the farm to the market (cold storages, specialty chemicals and pharmaceuticals. It is easier to
for instance) are poor in Kerala too. convert the output from these industries into products
Benefits to health and tourism sectors that have a ready market in Kerala.
A revival of the agricultural sector and agro-processing Petrochemicals are key ingredients for a wide variety
industries in Kerala will have hugely beneficial impacts of products including industrial grade paints and
in the areas of health and tourism in the State. Easier coatings, latex paint formulations, water proofing paints,
availability of better (tastier and healthier) food products bonding, adhesion and hardening chemicals, adhesives
will be a big boon for the local population as well as for for plastic tapes, labels, self-adhesive envelopes, medical
tourists. Kerala has much to learn from the East Asian and construction adhesives, new generation plastics and
countries including Thailand, Malaysia, and Taiwan plasticizers, all-purpose plasticizer for PVC and vinyl
in successfully combining agriculture, agro-processing chloride copolymers, herbicides, plasticisers and textile
industries, tourism, and the hotel and restaurant finishing, super absorbent polymer used for diapers,
business. There should be a conscious campaign in rheological modifiers in surface coatings, personal
the State to include bigger portions of locally grown care products, benign dyestuffs and non-phosphate
vegetables and fruits in Malayalee cuisine. detergents (Sukumaran Nair, 2020).
Specialty chemicals include adhesives,
II. Chemical and Petrochemical Industries
agrichemicals,  cleaning  materials,  cosmetic
Expansion by BPCL-Kochi Refinery and its additives, construction chemicals,  elastomers, 
implications flavours,  fragrances,  food additives, industrial
Bharat Petroleum Corporation Limited’s (BPCL)- gases,  lubricants,  polymers,  surfactants, and textile
Kochi Refinery has undertaken a major expansion auxiliaries. (Source: https://en.wikipedia.org/wiki/
(investment amounting to Rs 4,588 crores) of its refining Speciality_chemicals).
capacity, and this holds great promise for the chemical Biochemicals is another area in which there is
and allied industries in Kerala. After its expansion, great potential for growth in Kerala. Biochemicals
BPCL-Kochi Refinery’s refining capacity is expected include “enzymes, hormones, pheromones, which
to increase from the current 9.5 million metric tons either occur naturally or are manufactured to be
per annum (MMTPA) to 15 MMTPA. BPCL-Kochi identical to naturally occurring substances.” (Source:
Refinery will then have the largest refining capacity http://www.businessdictionary.com/definition/
among public-sector refinery units in India. With the biochemicals.html). One of the distinguishing features
increase in its refining capacity, BPCL-Kochi Refinery of the biochemical industry is that its products are
will be producing approximately 3,00,000 MMTPA of typically of low volumes but of high value. The
propylene and 90,000 MMPTA of ethylene. Propylene applications of biochemical include oleoresins, natural
and Ethylene are key ingredients for a wide range of pesticides, therapeutic products, and human insulin.
downstream industries in the areas of petrochemicals A Kerala-based company Synthite is a major player
and specialty chemicals. in the production of oleoresins. Agricultural and
Petrochemical complex at Kochi natural resources of Kerala will have greater industrial
The State Government has plans to set up a petrochemical applications with the emergence of a dynamic biotech
complex at Kochi in land owned by Fertilizers and and biochemical industry (for example, oleoresins are
Chemicals Travancore Limited (FACT). After its produced from spices or herbs).
completion, the petrochemical complex is likely to Building linkages
attract large private investments in the area of chemicals There exist some linkages between units in the chemicals
and petrochemicals. The upcoming complex will have and petrochemical sector in Kerala. The notable
90 | KERALA DEVELOPMENT REPORT 2021

ones include the relationship between BPCL-Kochi The current demand for titanium dioxide is indeed
Refinery and TCC (ethylene produced by BPCL-Kochi huge in India. In fact, domestic production accounts
Refinery and chlorine produced by TCC are used to for only 27 per cent of the total demand for titanium
produce PVC). Other units that collaborate by using dioxide in the country. The rest (73 per cent) of the
each other’s products are TCC and Keral Minerals and domestic demand is met by imports. KMML can
Metals Limited (KMML) and Travancore Titanium make use of this large demand (for titanium dioxide)
Products (TTP) and Malabar Cement. There should for its future growth. While KMML’s main strength
be greater number of such collaborations (to use each is its capability to produce titanium dioxide in large
other’s products), particularly in the context of the volumes, TTP’s strength is mainly in producing versatile
increased refining capacity of BPCL-Kochi Refinery. products based on titanium. TTP has the potential to
Prospects in bulk chemicals enter into specialty chemicals and specialty paints, such
Bulk chemicals form an important category of chemical as paint in prussian blue colour.
products manufactured by State PSUs in Kerala There are possibilities for the setting up of an
(for example, caustic soda produced by TCC). Bulk industrial complex (in, for instance, Chavara) for
chemicals are basic ingredients for several industries. the manufacture of downstream products based
At the same time, it is difficult to transport bulk on titanium and zirconium. Previous studies have
chemicals over long distances. Therefore, the expansion identified the technical feasibility and commercial
in the production of bulk chemicals in Kerala should viability for the manufacture of titanium mill products,
be guided by the demand emerging from downstream zirconium carbonate, and pearlescent pigments.
industries (that use bulk chemicals) within the State. Various titanium mill products (following metallurgical
It may not be easy to sell bulk chemicals produced in processing out of  titanium  sponge) include tubes,
Kerala in other States. sheets, bars, pipes, and coils, which are used in industries
Paint industry including aviation, aerospace, aircraft, chemical and
The paint industry is another area in which Kerala-based defence industries (Sukumaran Nair 2020).
firms will have good potential, given the availability of Urea manufacturing
petrochemical ingredients from BPCL-Kochi Refinery. FACT in Kochi was engaged in the production of urea.
As is well known, there is a large market for paint in However, its urea fertilizer plant was abandoned in
Kerala, especially paint used for house construction 2002 and the caprolactam plant has not been operating
purposes. At the same time, more than 80 per cent of for over a decade. At the same time, India has been
the paint consumed in Kerala today is manufactured importing around 90 lakh MT of urea every year,
outside the State. mostly from China and Oman. India is, in fact, one of
However, it may be difficult for a new private player the largest importers of urea fertilizer worldwide.
from Kerala to compete head on with the established The Central Government has announced plans to
players in the consumer paint industry in India. One revive five fertilizer (ammonia and urea) manufacturing
possibility is that Kerala-based firms could find some plants in the public sector that had been closed down
niche areas within the paint industry, such as industrial during the 2000-2002 period (citing, at that time, the
paint or corrosion-resistant paint. relatively high cost of production in these units). These
Titanium minerals are the plants of Fertilizer Corporation of India (FCIL)
The mineral sands available along the coastal regions and Hindustan Fertilizer Corporation Ltd (HFCL) at
of Neendakara and Kayamkulam are rich in titanium Talcher (Odisha), Ramagundam (Andhra Pradesh),
and zirconium, which have applications in a range Gorakhpur (Uttar Pradesh), Sindri (Jharkhand) and
of industries, including electronics, electric vehicles, Barauni (Bihar). The Government expects that the
aviation, aerospace, and chemical and defence revival of urea production will reduce the country’s
production industries. Kerala has to fully exploit the dependence on imports from China. FACT's plant
potential of its rich mineral sands by way of sustainable at Ambalamedu (Kochi) had a capacity of producing
mining, mineral separation, and further conversion to 3.3 lakh tonnes of urea per annum when it was closed
value added products. As of now, State public sector down in 2002. FACT has approached the Government
units, KMML and TTP, are engaged in value addition, of India with a proposal for a new urea plant. If this
with the production of titanium dioxide (Sukumaran proposal receives approval, FACT’s urea plant, which
Nair, 2020). will have access to natural gas as feedstock, will emerge
 INDUSTRIAL DEVELOPMENT | 91

as a major urea producer with relatively low investment design and manufacturing in many parts of the world.
and low cost of production.13 FACT will then be able The State can encourage some of them to return and
to meet the urea requirements for agriculture in several start enterprises in Kerala. Some of these non-resident
south Indian States. Keralites can act as mentors to technology start-ups
Cement manufacturing from the State, providing technology, expertise and
There is a large market for cement within Kerala. financial assistance to young entrepreneurs.
However, more than 90 per cent of Kerala’s current IV. Medical Equipment, Healthcare and
demand for cement is met by cement procured from Biotechnology
other States. Cement produced in Tamil Nadu and With respect to research and manufacturing in the area of
Andhra Pradesh supply nearly 70 per cent and 20 per medical devices, Kerala already possesses some expertise
cent respectively of the Kerala market (for cement). As and key advantages, including the presence of a few
of now, the major Kerala-based cement manufacturer leading research centres, availability of skilled workers,
(Malabar Cements) has a share of only around 6 to 8 per and favourable natural environment. Combining
cent of the market for cement within the State. Cement these advantages with the State’s strengths in the IT
manufacturing units in Kerala should make use of the sector, Kerala can emerge as a significant player in the
large market for cement from within the State. medical devices sector. Kerala should devise strategies
to nurture entrepreneurs capable of setting up high
III. Electronics technology firms in the health sector across the State.
Kerala was one of the first Indian States to recognise Given the critical importance of the medical devices
the importance of electronics manufacturing when the sector on the one hand, and the large dependence in
State Government set up Keltron in 1973. Despite its the country now on imported medical devices, Kerala
early start, Kerala lags behind some other Indian States, can contribute significantly to the national efforts to
notably Tamil Nadu and Karnataka, in electronic build technological and manufacturing capabilities in
hardware manufacturing. At the same time, the growth this sector.
of the electronics industry in India, at the national-level, In the medium to long run, Kerala could become a
has also been far below the country’s potential in this leading centre of research and high-end manufacturing
sector. While Kerala has been more successful in the IT in the areas of diagnostics, biotechnology and
industry than in electronics hardware manufacturing, pharmaceuticals, as well as of medical devices. In
it is not yet a leading State in terms of IT revenues. At addition to the existence of some leading research
the same time, industry sources say that the nature of institutions and the availability of skilled labour, one
software development in the State and the skill-levels of of Kerala’s key strengths in the above-referred areas
its IT workers provide Kerala some niche advantages. is the State’s health infrastructure itself. The wide
Given such a context, Kerala should think of ways network of hospitals, health professionals, and patients
to revive manufacturing of electronic and IT hardware (who are educated and health conscious) across Kerala
in the State. First, the market for electronic and IT provide an enabling environment, including a rich
goods in Kerala is relatively large and sophisticated. source of data, for researchers in all fields relating to
The State Government itself is a large consumer of health. The State should particularly encourage startups
electronic and IT hardware products. Secondly, Kerala and high technology SMEs in research and high-end
should build on the unique advantages of the IT sector manufacturing in these areas.
in the State and also make good use of the skill sets Biotechnology offers the potential for the
of its IT workforce. Globally, there is now a growing development of a range of value-added products
integration between the IT and electronic sectors and in Kerala, especially given the State’s rich natural
between software and hardware production. With IT diversity. Kerala has a number of academic and research
sector itself going through fundamental changes, it is institutions in the areas of biotechnology and life
important that Kerala turn its attention to diversifying sciences, which are considered as among the best in the
into hardware manufacturing as well. country. These institutions have created a critical mass
Thirdly, large numbers of engineers and professionals of human resources, which is an important asset for
from Kerala work in advanced areas of electronic Kerala in the biotechnology and life sciences industries.

To set up a modern Urea plant in Ambalamedu, with an annual production capacity of 12.7 lakh tonnes (2200 tonnes per
13

day of ammonia and 3850 tonnes per day of urea), investment required will be of the order of approximately Rs 4500 crores.
92 | KERALA DEVELOPMENT REPORT 2021

V. Anchor Industries: Industrial Corridor, Ports, sector units while the remaining 13 are in the cooperative
Shipping, Logistics, and Inland Water Transport sector), which together employ approximately 5000
System workers. There are also a few major private sector
Kerala has taken steps to implement the high-tech groups in the textile-spinning sector in Kerala. There
industrial corridor project connecting Kochi and include the mills run by the Patodia Group in Aluva
Palakkad. Kochi-Palakkad Hi-Tech Industrial Corridor (GTN) and by Pricot in Kanjikode, Palakkad.
will be part of the Chennai-Bengaluru Industrial However, the textile sector in Kerala has been going
Corridor project. The corridor is expected to stimulate through a difficult phase, with almost all of the mills
large investments in the areas of high technology in the public and cooperative sectors registering losses.
manufacturing, agro-processing, IT, biotechnology, A revival of the textile and garment sectors in Kerala
and life sciences. After its full implementation, the has been an important item on the agenda of the State
Corridor project will be one of the key centres for Government.
Kerala’s industrial growth. According to the 2011-12 NSSO survey, there
International experience suggests that there are were a total of 1.7 lakh workers in Kerala in the
important possibilities for industrial growth based textile industry, which also included workers in the
around ports. Singapore provides a good example. coir industry. At the same time, the garment industry
The advantages offered by the Singapore port provided in Kerala provided employment to 3.3 lakh workers,
the momentum to that city-state’s emergence in later which also included employment in small, tailoring
years as an international hub for shipping, logistics and establishments. The textile and the garment industries
distribution, and communication and information. together provided employment to 5 lakh workers in
With the setting up of the Vizhinjam port, the Kerala, which accounted for 27.6 per cent of the total
Kerala coast will have two major ports (Vallarpadam in manufacturing employment in the State (of 18.1 lakh)
Kochi is the other major port) and a number of minor in 2011-12 (see Table 5.5; also see Thomas 2020).
and intermediate ports. Given such a context, there is The major centres of textile production in India are
a huge potential for the growth of various industries located in Tamil Nadu and Gujarat, and these States
in Kerala, mainly around Vizhinjam and Vallarpadam provided employment for 16.8 lakh and 10.5 lakh
ports. textile workers respectively in 2011-12. There were
Costs related to transport and logistics form a 5.7 lakh textile workers in Maharashtra. A majority of
substantial chunk of the overall costs in chemicals, the textile workers across the country are engaged in
minerals and related industries in Kerala. In fact, in small, unregistered firms, working with powerlooms or
the case of cement manufacturing units in Kerala, handlooms (Thomas 2020).
transport-related costs account for almost 70 per cent In 2016-17, there were 220 factories in Kerala
of the overall costs. engaged in the spinning, weaving and finishing of
An effective inland water transport system can go a textiles, and they employed a total of 14,300 textile
long way in reducing costs associated with the transport workers. In the same years, there were 4409 factories in
of cement and heavy chemicals in Kerala. Tamil Nadu in the spinning, weaving and finishing of
In Kerala, an inland water transport system will textiles, employing 3 lakh workers (see Thomas 2020).
be preferred over road transport with respect to the As already mentioned, the garment industry
safety aspect too. Transporting over dimensional provided employment to 3.3 lakh workers in Kerala in
consignments (ODCs), which carry large equipment 2011-12, according to NSSO data (see Table 5.5). This
or heavy chemicals, through Kerala’s crowded roads is a included employment in small, tailoring establishments.
highly risky affair. But if we look at employment only in the relatively
VI. Textile and Garments large garment factories (employing at least 10 workers),
There is a large market for cloth in Kerala. At the same the number is much smaller. In 2016-17, there were
time, however, employment creation in Kerala within only 44 garment factories in Kerala employing a total
the textiles and garment sectors is rather limited. There of 8,384 workers. In comparison, there were 936
is large potential for an expansion of enterprises and garment factories in Karnataka employing a total of 2.7
workers in the textiles, garments, and related industries lakh factory workers. Tamil Nadu had 1,315 garment
in Kerala. factories but total factory employment in the garment
There are 20 textile mills in Kerala in the public or sector in that State was less than in Karnataka: 1.1 lakh
cooperative sectors (7 of these mills are State public garment workers (all for 2016-17) (see Thomas 2020).
 INDUSTRIAL DEVELOPMENT | 93

Bangalore in Karnataka and Tiruppur in Tamil Nadu case of the undergarment manufacturing industry, big
are two of the largest centres of garment production in brands such as Jockey command dominance because of
the country. their large volumes of production and their financial
Textile spinning sector in Kerala: major challenges and marketing strengths (Thomas 2020).
The spinning sector in Kerala faces some important Kerala’s potential in the garment industry emerge
challenges including: (a) relatively small size and partly from the changing nature of the garment
technologically backward condition of the industry in industry worldwide. Globally, the trend in the market
Kerala (b) excess capacity in the spinning sector in India is towards “fast fashion models” in garments. This has
(c) fluctuations in raw material prices (c) competition reduced the lead-time, that is, the time between the
from firms in other State and China (d) and other initiation and completion of a production process.
challenges faced by the industry. This implies that more than scale, flexibility and skill
Kerala does not produce the raw material needed are going to become important in determining success
for the spinning sector – cotton or synthetics. Further, in the garment industry. In such a context, Kerala’s
the yarn produced by the spinning mills in Kerala is garment manufacturers will have an advantage because
processed outside the State – in textile centres such as of the relatively large home and export market they can
Bhiwandi in Maharashtra. In this way, the spinning leverage (Chinju Johny 2020).
sector in Kerala is geographically isolated, with limited The other advantage is the large availability in Kerala
forward or backward integration. Most of the spinning of skilled workers and professionals in the garment and
mills in Kerala, particularly those in the public and fashion sector. The industry should work closely with
cooperative sectors, use old machinery and outdated fashion and design institutes in Kerala. The garment
technologies. Technological backwardness is a factor sector should take good advantage of online marketing
that reduces the productivity-levels of public or strategies. The State Government should play the role
cooperative sector spinning mills in Kerala (Thomas of a facilitator in triggering the growth of the garment
2020). sector in the private sector. Special attention should be
The textile industry in India began to face difficulties devoted to the nurturing of woman entrepreneurs.
after 2011-12, with the general slowdown in the VII. Handloom and Powerloom Sectors in Kerala
economy. The large capacities (in textile spinning) that The handloom and powerloom industry provide
were created during the boom period (2003-2008) has employment to a sizeable section of the workforce in
emerged as a major issue for the industry. One of the Kerala. As already noted, there were 1.7 lakh workers
major challenges facing the Indian textile industry is in the textile industry in Kerala in 2011-12 (including
that some of India’s competitor countries, introducing workers in the coir industry). It is likely that 90 per
Vietnam and Pakistan, face very little duties in their cent of these workers are in the informal sector,
export markets. This is because of the Free Trade which include workers engaged in handlooms and
Agreements (FTAs) entered by these countries with powerlooms.
their trading partners. The handloom and powerloom industries in Kerala
Garment industry in Kerala: major challenges and are characterised by low-levels of productivity and poor
opportunities conditions of work. According to persons associated
Kerala has a large and sophisticated market for all types with a handloom cooperative society in Kalliassery,
of garments. In addition to the large home market, Kannur, a worker engaged in handloom weaving is
garment firms in Kerala can also take advantage of able to weave only 5 to 6 metres of cloth in a day. A
the demand for Kerala-specific designs from a sizeable worker is able to earn only around Rs 350-400 a day
export market comprising non-resident Keralites. (although a worker’s total earnings in a day, including
Compared to the spinning and weaving sectors, the benefits such as PF she receives would amount to Rs
value addition is much higher in the garment sector. 645) (Thomas 2020).
Compared to the spinning and weaving sectors, While a handloom worker is able to produce only 5
capital requirements are low in the garment sector. to 6 metres of cloth in a day, a worker in the newly set
Therefore, there is greater scope for entrepreneurship up high-tech weaving factory in Pinarayi (in Kannur)
in the garment industry. At the same time, however, can oversee the production of up to 450 metres of cloth
relatively small players in the garment sector face stiff in a day.14 Compared to handlooms, productivity-levels
competition from the bigger firms. For instance, in the are much higher even in powerlooms.
94 | KERALA DEVELOPMENT REPORT 2021

Working conditions are poor for workers engaged in are engaged in cashew factories in the private sector.
handlooms and powerlooms (noise-levels are particularly Therefore, the crisis that has affected private-sector
high in powerlooms). Cooperative societies should be cashew factories has rendered several women workers
able to provide toilet and other facilities, especially for jobless.
women workers engaged in these industries. A major reason for the problems facing small
It is clear that in handlooms and other traditional and medium-scale cashew factories has been the
sectors, both technological and organisational fluctuations in the price of raw cashew nut (RCN),
innovations are needed to increase productivity, which affect the working capital requirements in the
improve wages, and at the same time, avoid job losses. industry. In recent years, the price of raw cashew nut
The promotion of handlooms should be done along has risen to as high as 2,400 dollars per ton. The rise in
with measures for improvement of value added per international prices of raw cashew nut along with the
worker. depreciation of the Indian Rupee (against the dollar)
Handlooms should be encouraged to work on meant that the working capital requirements in the
products/areas where it can create a niche market industry have soared to very high-levels. The cashew
(such as high design furnishings or sarees). Handloom processing industry was particularly affected by a rise in
cooperatives should work with design institutions such the import duties (to 9.7 per cent) on raw cashew nut
as National Institute of Fashion Technology (NIFT) imposed in 2014-15 (the import duties have now been
so that they can come up with innovative designs and reduced to 2.5 per cent).
marketing strategies. Another option would be a tie up A field study carried out in 2018 found that a
between handloom weaving societies and the tourism cashew-factory owner employing 100 workers requires
sector (Thomas 2020). approximately 1.2 tons of raw cashew nut on a daily
The State Government has engaged handloom basis. When the raw cashew nut prices increased to
cooperative societies in Kerala to supply cloth for 2,400 dollars per ton and the Rupee-dollar exchange
the School Uniform Scheme of the Government. rate depreciated to Rs 70 per dollar (as it happened in
Handloom workers and leaders of cooperative societies some months in 2018), such a factory required working
have agreed that the School Uniform Scheme has helped capital of approximately Rs 2 lakh per day. Assuming
to revive the sector to some extent. The Government that the factory operates for 200 days, the annual
is planning to extend the School Uniform Scheme working capital requirement for such a factory would
to cover a greater number of students in the State. A be approximately Rs 4 crores a year (Thomas 2020).
demand from powerloom cooperative societies has Banks had been providing large working capital
been that they should also be allowed to benefit from loans to cashew factories in Kollam, especially during
the scheme. periods when the industry was generating profits.
Typically banks have been giving loans to cashew
VIII. Other Traditional Industries
factories with houses or land owned by the factory-
Cashew industry owner as collateral. However, many of the cashew
The cashew industry in Kerala has been facing a severe factories have started incurring losses as the prices of
crisis from 2013-14 onwards. In 2018, according to raw cashew nut began to climb upwards from 2013-14
industry observers, the crisis affected more than 80 per onwards. At the same time, there has also been a general
cent of the 834 registered cashew factories in Kerala, decline in the export demand for cashew, especially
and close to 20 per cent of all cashew factories had been from developed countries (Thomas 2020).
burdened with stressed assets (as declared by banks The cashew industry in Kerala continues to employ
from which these factories had taken loans) (Thomas traditional technologies for cashew processing. In fact,
2020). the industry in Kerala believes that the handcrafted
According to some estimates, the cashew industry (drum roasting technique) cashew processed in Kollam
in Kerala employs as many as 2 lakh workers, mostly has a distinctive flavour and this provides them a
women. The public sector units in the cashew industry unique marketing advantage. At the same time, the
– Kerala State Cashew Development Corporation and cost of processing of cashew in Kerala is higher than
CAPEX – together employ approximately 16,000 the costs in other Indian States and in Vietnam, partly
workers. The rest of the cashew workers (that is, on account of the traditional nature of production
approximately 90 per cent of the cashew workers) technique employed in Kerala.
Based on the author’s field research in Kannur, Kerala (2019).
14
 INDUSTRIAL DEVELOPMENT | 95

Coir processing marketing strategies. Already the State Government

One of the important challenges faced by coir industry has encouraged diversification into industrial coir
in Kerala is the shortage of raw material, namely with a focus on non-woven, coir geo textiles, coir
coconut husk, which is processed into coir fibre and composite/ injection molded coir and coir composite
coir products. There has been a general stagnation in board. Given coir’s properties such as tensile strength,
coconut cultivation in Kerala in recent years. There it has applications in sectors such as automobiles and
have also been other constraints to the collection and aerospace. The coir sector requires entrepreneurs who
processing of coconut husk in Kerala. They include the can take advantage of the research in the area of coir
relatively small size of land holdings in which coconut and related material.
is cultivated in the State and environmental issues IX. Knowledge Economy Clusters in
involved in processing of husk. Thiruvananthapuram, Kochi and Kozhikode-
At the same time, the neighbouring State of Tamil Kannur
Nadu has distinct advantages compared to Kerala with Thiruvananthapuram has the potential to emerge as one
respect to the availability of raw material. Pollachi in of the most dynamic centres of knowledge economy
Tamil Nadu has emerged as a major centre for the coir within the country, with a distinctive advantage in
industry. In fact, there are several units in Tamil Nadu, biotechnology and life sciences. The premier academic
which make use of coir pith, which is a byproduct in and research institutions in Thiruvananthapuram
the conversion of coir husk into coir fibre. Coir pith is include the Rajiv Gandhi Centre for Biotechnology
extensively used for agriculture and poultry farming in (RGCB), Sree Chitra Tirunal Institute for Medical
Tamil Nadu. Tamil Nadu and China (for coir mattresses) Sciences and Technology (SCTIMST) and Indian
have made major advances in coir processing. Institute of Science Education and Research (IISER).
Modernising the traditional sectors Kerala State Industrial Development Corporation
The Government is taking steps to modernise the (KSIDC) has set up a Life Sciences Park in
traditional industries in the State, including coir, cashew, Thiruvananthapuram. Within the Life Sciences
and handloom. As already noted, these industries Park, the Institute of Advanced Virology has started
continue to employ a substantial part of the State’s total operations in 2019. A facility for the manufacture of
workforce. Modernisation of traditional industries will medical equipment is also being set up within the Life
include (but will not be limited to) mechanisation of Sciences Park.
production processes in these industries. Moreover, Kochi and its surrounding areas also offer exciting
with modernisation, Kerala’s traditional industries will potential for the growth of biotechnology. Cochin
strive to diversify into new products (such as geo-textiles University of Science and Technology (CUSAT) and
in the coir sector), and evolve effective marketing and Mahatma Gandhi University (in Kottayam) carry
distribution strategies. Rather than displacing workers out research in this field. Kerala State Drugs and
(a strategy involving mechanisation alone may result in Pharmaceuticals (KSDP) Limited has pharmaceutical
this), modernisation will lead to overall expansion of production facilities in Alappuzha. Kerala is planning to
the industry and the creation of greater value addition set up a Pharma Park in Kochi, which will be developed
per worker. along with the Petrochemical Park, both of which are
The State Government has taken several steps to being set up adjacent to BPCL-KRL (Kochi Refinery
modernise the coir sector. The initiatives include plans Limited). Pharma Park in Kochi could provide space
for technology-enabled procurement and decentralised for firms that are engaged in research and high-end
fibre extraction. The procurement process will be manufacturing in the areas of pharmaceuticals and
carried out by Kudumbashree units/farmer producer biotechnology.
companies, making use of mobile based aggregated A third cluster of biotechnology and life sciences
procurement platform. For the traditional spinning industries could be developed in the northern
and weaving sector, the strategy involves the building of part of Kerala, which will take advantage of the
linkages with eco-tourism projects (which highlight the academic and research institutions as well as the rich
history of coir). At the same time, industrial spinning biodiversity in this region, including Kozhikode,
and weaving sectors will be modernised. Kannur and Wayanad. Both Kozhikode and Kannur
For achieving a brighter future, the coir industry in have international airports, and they can benefit, in
Kerala has to venture into new products and innovative particular, from their relative proximity to Bangalore
96 | KERALA DEVELOPMENT REPORT 2021

(firms in high technology areas considering a shift out Government, will play an important facilitating role.
of an overcrowded Bangalore may consider setting up There are 103 State PSUs in Kerala, which include
their bases in these cities). 42 PSUs under the Industries Department. State and
Industrial Policy and Agencies for Central PSUs in Kerala possess enormous resources,
Transformation which include the expertise of their staff, access to
I. Industrial Policy
advanced technologies including machinery and testing
facilities, as well as ownership of land and buildings in
Industrial policy and agencies for economic
prime locations across the State.
transformation are both important factors while charting
State public sector units in Kerala could become the
a new path for industrial growth in Kerala. Industrial
prime movers for a range of public-private partnerships
policy for Kerala should recognise the State’s unique
in advanced technologies across the State. State PSUs
challenges and opportunities. As the Approach Paper
could provide incubator facilities for startups and small
for the Thirteenth Five-Year Plan points out, Kerala as a
and medium enterprises. They can set up research
region is not suited for industrial units that require vast
centres and training facilities to nurture high technology
tracts of land, industries that degrade environment, or
entrepreneurship.
industries that are based solely on cheap and unskilled
Consider, for instance, Keltron. Keltron has
labour. At the same time, as the Approach Paper argues,
production facilities in several locations across Kerala.
Kerala should aim to set up a modern industrial sector Keltron could set up a research centre in advanced
that builds on the distinctive advantages of the State’s electronics, which may encourage researchers and
rich natural resources and skilled workers. professionals in the area of electronics to associate
Kerala’s future industrial growth should be based with the public sector unit. It is possible that many
increasingly on private enterprise. In fact, there is professionals who are non-resident Keralites may be
enormous potential for saving mobilisation and keen to work in Kerala on visiting fellowships or other
entrepreneurship within the State. Kerala’s distinctive arrangements. Keltron could encourage some of these
advantages include workers and entrepreneurs in researchers or a selected number of young engineers to
the State who are educated, with many of them set up startups, making use of its incubator facilities.
professionally qualified and having exposure to new This could set the stage for transforming Keltron into
technologies and the wider world. Given the nature of a major facilitator for entrepreneurship in advanced
capital and entrepreneurship within the State and given electronics.
also the unique conditions of its geography and natural One of the important means to promote innovative
environment, industrial growth in Kerala could be led industries is through the building of strong linkages
by small and medium enterprises – enterprises that are among three institutions: universities or academic
innovative and high value adding. institutions, industry, and the Government. The long-
It needs to be emphasised that Kerala’s future term foundations built in the State in the areas of health
economic growth should be led increasingly by and education provides a launching pad for the State
knowledge-based, high technology, and innovative in knowledge-intensive industries. Universities and
industries and sectors. Kerala should have a plan academic institutions in Kerala should be encouraged
to harness the latest advances in areas such as to work in cutting edge areas of technology and also
biotechnology, life sciences, nanotechnology, and to work closely with industry. Students and faculty
material research for the State’s future economic growth. members should be encouraged to set up startups
At the same time, Kerala should also try to transform and high technology enterprises. The potential for
its traditional industries, including handloom, coir, and university-industry-Government linkages are the
cashew, making use of new technologies, especially in highest in sectors such as life sciences, biotechnology,
design and marketing. With a population of close to 35 and advanced electronics.
million (in 2012), which has one of the highest-levels The State Government has already implemented
of per capita consumption in the country, Kerala is a a number of reform measures to ease the process of
large market for a range of new-technology products, setting up an enterprise in Kerala. They have been
including electronics, IT, and health-related products. aimed to reduce the delays faced by a prospective
While Kerala’s future industrial growth may be entrepreneur in getting permissions from the relevant
led by the private sector, public sector institutions, authorities, getting land allotted to set up the factory,
especially public sector units (PSUs) under the State and obtaining permits for construction and electricity
 INDUSTRIAL DEVELOPMENT | 97

connection. The State has also achieved much progress from various quarters, including the State Government
in making the process of finding information and Departments of agriculture, industry, and tourism, local
obtaining permissions online. self-Governments, research institutions, NGOs, health
At the same time, it is important to recognise that and nutrition professionals, and the media. In fact,
industrial policy for Kerala should not solely be about the State Government could launch a major campaign
competing with other Indian States in Ease of Doing for the building of a strong agro and food production
Business. The Ease of Doing Business ranking, which sector in Kerala – similar to the earlier campaigns for
is mainly based on a methodology recommended by mass literacy and democratic decentralisation.
the World Bank, attach importance to the cheapness III. Institutions for Technology Acquisition and
of land and labour. Given its relative shortage of land Continued Innovations
and semi-skilled labour, Kerala may find it difficult to There are many potential entrepreneurs in Kerala
compete with many other Indian States in attracting (including migrant returnees from the Gulf countries)
labour-intensive or resource-intensive industries. who are seeking opportunities to set up industries,
Instead, industrial policy in Kerala should focus more including agro-based industries, in the State. However,
clearly on encouraging enterprises that are based on a major hurdle for an entrepreneur planning to set up
innovation, new technologies, and entrepreneurship. an agro or food-based industrial unit is that he/she does
II. Industrial Promotion Agencies not have enough information about or access to the
A number of Governmental or public-sector agencies relevant technologies (relating to products, processes,
are involved in the promotion of private industrial units and machinery). The State Government must support
in Kerala. They include the Department of Industries entrepreneurs with acquisition and learning of
and Commerce (DIC), Government of Kerala, Small technologies.
Industries Development Corporation (SIDCO), Kerala The State needs to evolve multiple strategies to
State Industrial Development Corporation (KSIDC), access technologies in the chemicals and petrochemical
and Kerala Industrial Infrastructure Development sector, especially in the new and emerging areas (such
Corporation (KINFRA). as biochemicals). There should be efforts to promote
Industrial promotion policies for startups and high interaction between industry and universities or
technology enterprises are not the same as the policies academic and research institutions in Kerala. Industry-
needed for promoting conventional industries. The academia collaborations are likely to be more important
agencies should try to reinvent and adapt themselves to in the areas of biochemical and biotechnology. In
the changing demands of industrial promotion. several areas of chemicals and petrochemicals, Kerala-
There is some degree of overlap between the based firms could consider entering into joint ventures
promotional functions and policies of these various with leading firms in the respective fields or purchasing
agencies. A number of agencies are involved in the technologies from them.
development and allotment of land needed for industrial IV. Local Governments
growth. They include DIC, SIDCO, KSIDC and Local governments have played an important role in
KINFRA. Of these, while the DIC aims to promote and industrial development in many parts of the world,
allot land for micro and small industrial units, KSIDC notably China. Local governments can contribute
is mandated to aid the growth of medium and large effectively to the development of industries in rural
industrial units. At the same time, there are substantial areas, and in particular to industries such as food
differences in the policies for land allocation of the processing and garments.
various agencies, and the cost of renting/purchasing In Kerala, local governments can be an important
industrial land from them. source of support in the State. There are two reasons for
There is need for building greater synergies between such an optimism. First, local governments in Kerala
the activities of the various promotional agencies. There have been empowered – both politically and in terms
are, for instance, entrepreneur development schemes of financial resources allocated for them – to a greater
overseen by DIC and KSIDC. There is much to gain by extent than in other parts of India. At the same time,
achieving greater coordination between the activities of however, local governments in Kerala have only had
the various agencies in each of these cases. limited success in the sphere of industrial development.
The revival of agriculture and agro-processing Secondly, as the Approach Paper to the Thirteenth
industries in Kerala will require coordinated efforts Five-Year Plan of Government of Kerala notes, there
98 | KERALA DEVELOPMENT REPORT 2021

is large scope in the State for the development of as enablers and facilitators for industrial growth.
industrial units that are relatively small (with respect There should be an effective plan at local-level about
to the requirements of land and capital), and yet could the appropriate nature of industrial development
be characterised as “smart” (making effective use of for each panchayats. In fact, LSGIs have started new
advanced technologies). Kerala is particularly suited initiatives including “Entrepreneurs Club” to promote
for the development of agro and food-processing entrepreneurship and industrial growth.
industries. Local governments can play an effective role There should be healthy competition between local
in the development of these industries in Kerala. governments to facilitate industrial development in
There are two important ways in which local self- their respective panchayats. LSGIs could be ranked
Governments can intervene in industrial development: in terms of their success in promoting industrial
first, as a regulator and, secondly, as an agency for development. Often when various ward members or
planning and promotion of industries. Representatives councillors compete to get a share of the total budget
of industry associations point out that entrepreneurs in a panchayat, it results in investments whose size and
face several difficulties on account of LSGIs’ rules scale are less than optimal. Therefore, it is important for
related to industries. Entrepreneurs have to go through panchayats to have long-term plans with respect to the
a long process – often taking several weeks – to obtain nature of industrial development.
licenses from the local bodies. These licenses have to be V. The Role of Industries Department
renewed after a certain period. Panchayats can cancel The Industries Department should play an active part in
the licenses and issue “stop memos” to the units. There making use of the funds available with LSGIs. In fact, it
have been many instances in which the licenses had should vigorously campaign to obtain a substantial share
been cancelled on account of even minor complaints of funds for industrial development from the LSGIs. As
received by the panchayats (Thomas 2020). of now, the Departments of Animal Husbandry, Dairy
At the same time, officials from LSG Department and Fisheries have been successful in obtaining funds
point out that they are constrained by the rules and from the LSGIs because of their proactive interventions.
regulations related to industry at the local-level. As In the planning process for industrial development at
of now an entrepreneur has to obtain clearances from the local-level, Industrial Extension Officers (IEOs)
several departments including Town and Country of the Industries Department can play an important
Planning, Fire and Safety, and Pollution Control Board role. They can work closely with the LSGs to promote
before they apply for license from the local government. industrial development.
It was felt that some of these rules and requirements Processing of agro and food products has great
are outdated and can be simplified or done away with. potential for growth in Kerala. LSGIs should be actively
If the rules are simplified and local bodies are given involved in identifying products and in promoting
greater powers in giving permissions to industries, the entrepreneurs in these fields. They should, in particular,
process of obtaining licenses will be much faster for the try to obtain assistance from technically qualified
entrepreneur (she or he will not have to try to obtain persons in the panchayat, especially young engineers.
clearances from individual departments). Kudumbashree can work with LSGIs for the
According to the Panchayat Act, panchayats can promotion of agro and food based industries in
issue licenses for industrial units for a period of five particular.
years. It was felt that the process of renewal of license VI. Public Sector Units
should be made easier. The State Government has Among Indian States, Kerala has one of the largest
already initiated several measures to achieve greater ease numbers of public sector units set up by the State
of doing business in the State. As part of this, there will Government. Many of the public sector units in the
be changes in rules related to issue of industrial licenses State had been pioneers in India in their respective areas
by panchayats. of operation. Travancore Cochin Chemicals (TCC) and
LSGIs role in promotion of industries other chemicals-based units in the Aluva-Kochi region
LSGIs can play an active role in planning for and had been important players in India’s chemical industry
promoting industrial development. As of now, LSGIs at the time they had been set up (and at least until the
allocate only around two per cent of their total fund 1960s). Kerala was one of the first Indian States to
allocation for the industrial sector. There is also need recognise the importance of electronics manufacturing
for an attitudinal shift: LSGIs should see themselves when the State Government set up Keltron in 1973.
 INDUSTRIAL DEVELOPMENT | 99

Later, Kerala was one of the first States in the country to significant leap in industrial production in the State
set up an IT park when Technopark started operations through enterprises in the private, co-operative
in Thiruvananthapuram in 1995. and public sectors. Kerala envisages to establish a
In addition to State PSUs, Kerala also has a number modern industrial sector that builds on the distinctive
of Central PSUs. They include Fertilizers and Chemicals advantages of the State. To begin with, the Approach
Travancore Limited (FACT) in Kochi, Kochi Refineries Paper for the Thirteenth Five-Year Plan recognised
Limited (of Bharat Petroleum Corporation Limited that Kerala as a region is not suited for industrial units
(BPCL)), Cochin Shipyard Limited (CSL), and that require vast tracts of land, industries that degrade
Instrumentation Limited (IL) in Palakkad. environment, or industries that are based solely on
cheap and unskilled labour. Industrial growth in Kerala
PSUs as facilitators for private entrepreneurship
must make effective use of the skilled labour force in
PSUs in Kerala should play the role of facilitators for
the State as well as the latest advances in technologies,
the promotion of entrepreneurship, especially high-
including biotechnology, artificial intelligence, and
technology entrepreneurship. Chemical-based PSUs
nanotechnology. Given the specific features of the
could initiate special efforts to promote downstream
economy and spatial distribution in the State, growth
industries in the area of chemicals and petrochemicals.
in Kerala could be led by units that are relatively small
The upcoming Petrochemical Park and Pharma
(particularly with respect to the requirements of land
Park could emerge as important avenues for public-
and capital), and yet can be characterised as “smart”
private participation. KSIDC should launch special
(given their flexibility in production and adaptability
programmes to encourage private investors to begin
to market conditions).
manufacture of downstream products in chemicals and
petrochemicals. As already mentioned, there is huge Strategy for Future Industrial Growth
potential for promoting electronics, biotechnology and According to the Approach Paper for the Thirteenth Five-
other high technology sectors with assistance from State Year Plan, the strategy to build a strong manufacturing
and Central public sector institutions in these fields. base in Kerala will have two important components.
They need professionals with expertise in technological, On the one hand, there will be an emphasis on food and
financial, and other managerial experts related to each agro-based industries that have strong linkages with the
company. State’s agricultural, natural and marine resources. They
will include industries that add value to agricultural
VII. University – Industry Linkages for Technology
Upgrading products in the State, including rice, coconut, rubber,
In the medium to long-term, Kerala should take steps pepper, cardamom, banana, and pineapple; forest and
to enhance its human resource capabilities in the areas marine resources; and traditional industries such as coir
of biotechnology, life sciences and other advanced and cashew processing. The second component of an
technologies. Universities in Kerala could take the industrial strategy for Kerala relates to the promotion
initiative for this. Academic and research institutions in of industries that make effective use of advanced
Kerala should try to build collaborations with leading technologies and build on Kerala’s achievements in
technology institutions in India and abroad. Such the areas of health and education. This involves the
collaborations could lead to the exchange of students promotion of (a) specific segments of chemical and
and faculty members, joint research projects and petrochemical, electronic, port-based, and engineering
publications, and to a faster growth in the formation of industries, and (b) enterprises that are based on
technology firms in Kerala. frontier areas of computing and media technologies,
Universities and academic institutions in Kerala biotechnology, nanotechnology and life sciences.
should be encouraged to work in cutting edge areas An Overview of Major Achievements
of technology and also to work closely with industry. A turnaround in the performance of the manufacturing
Students and faculty members should be encouraged to sector has been central to the revival of Kerala’s economy
set up startups and high technology enterprises. from 2016 onwards. The annual rates of value-added
Industrial Sector in Kerala: Major Achievements growth in manufacturing were 18.2 per cent and 6.1
in the 13th Plan per cent respectively in 2016-17 and 2017-18, but the
The 13th Five-Year Plan and Targets growth rates declined to 1.78 per cent and 1.54 per
The Thirteenth Five-Year Plan for Kerala for the cent respectively in 2018-19 and 2019-20. The share
period 2017-2022 laid out a strategy to achieve a of manufacturing in total GSVA of Kerala was only 9.8
100 | KERALA DEVELOPMENT REPORT 2021

per cent in 2014-15 but rose to 12.5 per cent by 2019- The State is setting up industrial parks specifically
20. According to the Annual Survey of Industries, for the growth of petrochemicals, pharmaceutical
Kerala’s share in total value added by India’s factory manufacturing, and life sciences. Leveraging on the
sector improved from 1.2 per cent in 2014-15 to 1.6 advantages of local demand has been an important
per cent in 2016-17. plank of the industrial strategy, including in electronics
Major highlights of the improved performance of and food processing. There has been particular
Kerala’s manufacturing sector from 2016-17 onwards attention on the growth of defence electronics and
include a revival in the performance of State PSUs light engineering. The expansion and growth of Cochin
(mainly in the chemicals and electrical machinery Shipyard, Kochi Refineries Limited and KSEB have
sectors) and a continuing vigour in the growth of provided opportunities for downstream industries.
micro, small and medium enterprises (MSMEs) in Logistics and port-based industries have been another
the State. The impetus for growth has come from area offering big opportunities for the State.
fresh investments in petroleum refining in Bharat Achievements in Detail
Petroleum Corporation Limited’s (BPCL)-Kochi
Ease of doing business
Refinery, the emergence of two major ports in Kerala
The State Government has implemented a number of
(in Vallarpadom in Kochi and the upcoming Vizhinjam
business friendly amendments to the relevant laws and
port in Thiruvananthapuram) and also from a few big
regulations.
infrastructure projects, which are at various stages of
a) Kerala Investment Promotion and Facilitation
completion (these include, importantly, the Kochi-
Act, 2018. This Act envisages mandatory approval
Coimbatore Industrial Corridor project).
within a period of 30 days if applications are
One of the notable achievements for Kerala in the
submitted with necessary documents. The Act
sphere of industry has been a favourable change in
seeks to avoid delays in granting various licenses,
perception among potential entrepreneurs over the
permissions, approvals and clearances required
last few years. The general impression had been that
under the various enactments and make the State
Kerala was not a suitable investment destination. This
investor friendly.
is no longer the case today. Part of the reason is that b) Kerala Micro Small Medium Enterprises
the nature of industrial growth itself has changed with Facilitation Act, 2019. This legislation permits
the growing importance of knowledge and skill-based units, with an investment of less than Rs 10 crores
industries. Kerala has clear and specific advantages in and not falling under the “Red” category, to
knowledge-based industries compared to the rest of the establish and function in the State without taking
country. any licenses under State Rules for a period of three
In addition to the availability of skilled labour, years, based on self-declaration. The units may
Kerala offers possibilities for entrepreneurs to set up obtain licences within a period of 3 years and 6
knowledge-based industries across the length and months.
breadth of the State. The relative advantages enjoyed c) Kerala Micro Small Medium Enterprises
by even rural areas of Kerala in health, education Facilitation (Amendment) Ordinance, 2020.
and standards of living is a major positive feature. This legislation permits enterprises other than
Kerala’s future economic growth stands to benefit MSMEs and not falling under the “Red” category
from engagements with the large body of Malayali to establish and function in the State without
engineers and professionals who have worked with taking any licenses (under State Rules) for a period
the latest technologies and management practices in of one year. The Investment Facilitation Bureau
different parts of the world. According to NITI Aayog’s constituted under the Act will issue the required
India Innovation Index 2020, Kerala has been ranked clearances for the enterprises, which will have a
the best State in India on two indicators: enablers for validity of up to five years.
innovation and business environment. Further, Kerala d) Kerala Single Window Interface for Fast
is ranked second among Indian States with respect to and Transparent clearance (KSWIFT) portal.
human capital for innovation in this index. This provides an opportunity for entrepreneurs
Over the last few years, the setting up of mega food to obtain the required clearances for starting
parks, cluster based ventures, and cold storages across an industry from 18 different departments or
different regions of Kerala helped the promotion of agencies in the State. The State Government
agro-based and food processing industries in the State. officially inaugurated the K-SWIFT portal on
 INDUSTRIAL DEVELOPMENT | 101

November 2, 2019. Until December 2020, the storied industrial estates at Puzhakkalpadam Phase
portal has issued licenses to 511 entrepreneurs. In I (100,000 sq. feet), Punnapra (48,459.12 sq.
the past five years, clearances have been issued to feet) and Puzhakalpadam Phase II (1,34,555.55
29 projects with an investment outlay of over Rs sq. feet) is complete, and they are expected to be
3,600 crores. commissioned by March 2021.
e) Invest Kerala Portal. This portal acts as a 3 The Cluster development MSE CDP scheme
single touch point for providing all the relevant includes assistance for sourcing of raw material,
information needed for an entrepreneur, including mutual credit guarantee for sourcing loans, common
fiscal incentives, land bank details, SOPs, brand creation, marketing, setting up of common
guidelines, and so on. facility centres, training centres and quality testing.
Directorate of Industries and Commerce Total number of clusters assisted under this scheme
According to the Directorate of Industries and is 6 and total amount distributed is Rs 989.83 lakh.
Commerce (DIC), the number of MSME units that 4 Business Incubation Centre and Investment
started operation in Kerala during the five-year period Facilitation Centres have been set up at 14 district
from 2016-17 to January 2021 was 64,879. Total industrial centres to provide guidance and mentoring
investment in these units is Rs 6,081.53 crore and total to entrepreneurs (in project preparation, obtaining
employment in these unts is 2,29,400. licenses and clearances, liaising with financial
Major achievement under various schemes institutions and so on) and address technical issues
1 The Entrepreneur Support Scheme provides they face.
support to MSMEs in the form of Startup Support, 5 Online processing of applications. Applications
Investment Support and Technology Support (15 for licenses from and schemes of the Directorate
per cent to 30 per cent subsidy with a maximum of Industries and Commerce and the 14 district
ceiling of Rs 30 Lakhs). During the last five years, industries centres are now received and processed
5027 units received assistance under ESS and the online.
total amount disbursed was Rs 237.69 crore. 6 Industrial promotional programmes. These include
2 Multi-storied Industrial Estates, with captive Entrepreneurship Awareness Programmes conducted
power plants as well as material handling and at the block-level, Investors Meet at the taluk and
other infrastructure facilities have been set up district-levels, and Entrepreneurship Development
in a few locations across the State. More than 90 Programme at the district-level. Entrepreneurs
per cent of the construction work on the multi- were provided support through Technology Clinics

Table 5.8 Subsector-wise details of new MSME units started in Kerala, from 2016-17 to 2020-21, up to January
2021
Name of subsector 2016-17 2017-18 2018-19 2019-20 2020-21 Total
Agro and food-based 2,395 2,553 2,712 2,582 2,457 12,699
Textiles and garments 1,695 1,947 1,858 1,904 935 8,339
General /mechanical/light engineering 1,606 2,001 1,533 1,334 630 7,104
Service activities 3,057 3,679 3,259 4,036 1,827 15,858
Wood products 775 871 644 5,32 322 3,144
Cement products 344 469 329 3,09 149 1,600
Printing and allied 322 392 348 2,80 132 1,474
Paper products 172 163 192 1,88 144 859
Information technology 263 316 294 2,40 125 1,238
Others 3,098 3,077 2,657 2,290 1,445 12,564
Total 13,727 15,468 13,826 13,695 8,163 64,879
Note: Data for 2020-21 is up to January 31, 2021
Source: Directorate of Industries and commerce
102 | KERALA DEVELOPMENT REPORT 2021

and Technology and Management Development a Seed fund assistance

Programmes. The average annual numbers of Seed Funding is financial support provided to
persons who have been attending Entrepreneurship innovative ventures or other startup businesses. A
Development Programmes in Kerala is 30,000. It maximum of Rs 25 lakhs per venture or 90 per cent
is expected that one in five or 6,000 of the 30,000 of the initial cost of the project, whichever is lower,
people who attend the programmes become is sanctioned as soft loan for a period of one year at
entrepreneurs each year, and in the process, create the prevailing RBI bank rate. Since 2016-17, seed
15,000 new jobs (every year). fund assistance of Rs 10.6 crore was provided to 78
7 Exhibitions and trade fairs. Exhibitions and trade firms.
fairs are organised in each district showcasing the b Project infrastructure
products of MSMEs. Some of the annual events 1) Life sciences park. A dedicated park for the
include Kerala Agro Food Pro and Machinery Expo. Life Sciences sector is being set up by KSIDC in
In the exhibitions held as part of these events in 2020, 206 acres of land (Phase I: 75 acres and Phase II:
there was participation by 125 agro-processing units 131 acres) at Thonnakkal, Thiruvananthapuram.
and 132 machinery manufacturers respectively. Work on infrastructure development has been
8 The Government has also created the Commerce completed in Phase-1 of the Park in which
Mission to encourage and develop trade and the Institute of Advanced Virology project has
commerce in the State and to market indigenous become operational.
products in domestic and global markets. Kerala 2) Medical devices park. KSIDC, as a joint
9 e-Market web portal has been launched to provide initiative with the Sree Chitra Tirunal Institute for
better marketing facilities to MSMEs and PSUs. Medical Sciences and Technology (SCTIMST),
10 Entrepreneur Development Clubs have been has conceived a Rs 260 Crore project for setting
formed in schools and colleges to nurture the up a Medical Devices Park (MedSpark) in 9
entrepreneurship spirit in the younger generation. acres of land in the Life Sciences Park (Phase-I).
During the period 2016-2020, 1245 ED Clubs The project will be completed in March 2022.
have received a total of Rs 130 lakhs as grant. 3) Mega food park, Cherthala. KSIDC has set
KSIDC up a Mega Food Park at Pallipuram, Cherthala,
KSIDC, which was established in 1961, is the with a thrust on processing and export of seafood
premier industrial promotion agency of the Kerala items. The Park will be linked to pre-processing
State Government. Table 5.9 gives a summary of the centres (PPC) at Thoppumpady, Vypeen, and
assistance provided by KSIDC to enterprises through Munambam. Five units have already started
participation in share capital and disbursement of loans. operation and land has been allotted to another
The number of enterprises that received assistance from 22 units. A standard design factory building of
KSIDC increased from 27 during the two-year period 20,000 sq. feet, common facility centre, and a
2015-17 to 47 during the two year period 2019-21 warehouse building of 9,000 sq. feet have been
(with data up to January 2021). constructed at the Mega Food Park.

Table 5.9 Assistance provided by KSIDC to enterprises, as share capital and loans, 2015-16 to 2020-21, Rs in
Crore
Year Number of Share capital Loan amount Loan amount Loan amount
units provided assistance sanctioned, in disbursed, in recovered
assistance disbursed, in crores crores crores (P+I)
2015 –16 15 2,093.12 86.65 63.22 118.17
2016 –17 13 191.71 85.82 64.07 75.58
2017 –18 20 194.41 149.47 71.70 81.41
2018 –19 14 309.31 120.66 64.18 85.47
2019 – 20 24 334.70 304.51 85.78 90.50
2020 –21 23 422.00 156.75 213.89 41.66
Note: 1. Share Capital Assistance disbursed in 2015-16 includes investment on Kannur International Airport.
2. Data for 2020-21 is up to January 31, 2021
 INDUSTRIAL DEVELOPMENT | 103

4) Industrial Growth Centres. A total 190 units Land available with KINFRA
are operating in the Industrial Growth Centres As on October 15, 2020, the total land acquired
(IGCs) set up by KSIDC in Kannur, Kozhikode, by KINFRA is 2,939.1 acres. Land available with
Alappuzha and Palakkad. (Table 5.10) KINFRA for industrial development purposes is
c) Events: Two Editions of Ascend and Young 2,318.3 acres, of which 1,476.7 acres have already been
Entrepreneur Summit allotted to industrial units. The remaining land (841.1
KSIDC and the Industries Department organised acres) is still available with KINFRA for allotment to
Ascend 2019 and Ascend 2020 at Kochi to highlight industrial units. KINFRA has completed infrastructure
the proactive steps taken by the State Government development in 12 key industrial sectors with world
in creating a hassle-free environment for doing class infrastructure in 24 industrial parks, of which
business. These events were held on February 11, 9 are catering exclusively to the small and medium
2019 and January 10, 2020 respectively. Ascend sector. Land has been allotted to 728 industrial units
2020 showcased more than 100 projects across in the various industrial parks of KINFRA with total
various sectors, and the State received expressions of committed investment of Rs 1,746 crore and providing
interest from entrepreneurs amounting to the tune direct employment to 20,000 persons. KINFRA
of Rs 1 lakh crores. has also successfully implemented a single window
The third edition of Young Entrepreneurs Summit clearance system in all the parks.
was held in 2017. The summit with the theme “Disrupt, Some of the upcoming projects of KINFRA include:
Discover and Develop” provided an ideal platform to Petrochemical Park, Kochi; Advanced Technology Park,
startup entrepreneurs and selected student innovators Ramanattukara, Kozhikode; Global Ayurveda Village,
from across the State. Thonnakkal and Varkala, Thiruvananthapuram;
Kannur Natural Rubber Products Private Limited Defence Park, Ottapalam, and Mega food Park,
(KNRPPL) Palakkad.
KSIDC has established KNRPPL to set up a PSUs
manufacturing unit at Kannur (Thaliparamba Taluk) The number of public sector units (PSUs) under the
for rubber-based products including gloves. Industries Department was 40 in 2016-17, which
Development of Integrated Solid Waste increased to 42 in 2019-20. Over the past four years,
Management Projects with Waste to Energy the turnover of PSUs increased from Rs 2,799.7 crore
Plants in 2015-16 to Rs 3,148.2 crore in 2019-20. State
The State Government has given sanction to set up PSUs under Industries Department, as a whole, were
Integrated Solid waste Management Projects with incurring net losses in 2015-16 and 2016-17. However,
Waste to Energy Plants at identified locations in these PSUs reported net profits in 2017-18 and 2018-
Thiruvananthapuram, Kollam, Trichur, Palakkad, 19. Details are provided in Table 5.11 and 5.12.
Malappuram, Kozhikode and Kannur districts. • KMML achieved a high profit of 181.11 crore Rs
Kerala Industrial Infrastructure Development in 2017-18. “Froth flotation”, a state of the art
Corporation (KINFRA) mineral extraction system from black sand, has been
KINFRA was set up in 1993 with the objective of implemented in this unit.
building industry-specific infrastructure across the • KSDP Ltd achieved turnover and profit of Rs 100
State and creating a land bank for future industrial crores and Rs 7.13 crores respectively in 2019-20.
growth. The industrial parks developed by KINFRA • KELTRON achieved a turnover of Rs 459.5 crore in
have facilities such as developed land on built up space, 2018-19.
dedicated power and water supply, and communication • TCC, after four years of slump, has recovered by
facilities. KINFRA provides a readymade manufacturing achieving a profit of Rs 55.87 crores in 2018-19.
environment for entrepreneurs, and help them reduce • Kerala Automobiles Ltd has started manufacturing
the time and cost involved in setting up a unit. Kerala’s Neem-G electric vehicles.
Table 5.10 Number of units operating in industrial growth centres
Specification IGC, Kannur IGC, Kozhikode IGC, Alappuzha KIZ, Palakkad
Number of units operating 59 72 53 6
104 | KERALA DEVELOPMENT REPORT 2021

Table 5.11 Performance of State of PSUs under the Industries Department, Government of Kerala, profit and
loss making units, 2015-16 to 2020-21 values in Rs crore
Particulars 2015-16 2016-17 2017-18 2018-19 2019-20 2020-21*
Profit making units
Number of Units 8 12 13 12 9 4
Value of Production 874.8 1,590.9 2001.7 2,252.9 1,774.6 500.1
Turnover 948.4 1,727.5 2,023.1 2,322.1 1,911.2 543.2
Profit made by the
113.5 91.8 252.9 241.2 121.6 28.7
profit making units
Loss incurring units
Number of Units 32 28 28 30 33 38
Value of Production 1,509.8 774.6 908.0 1,152.8 1,003.1 582.1
Turnover 1,851.3 993.8 898.0 1,120.7 1,237.0 674.5
Loss made by the loss
234.7 225.3 247.9 232.9 287.2 185.1
making units
Total units
Number of Units 40 40 41 42 42 42
Value of Production 2,384.6 2,365.5 2,909.8 3,405.7 2,777.7 1,082.2
Turnover 2,799.7 2,721.3 2,921.1 3,442.7 3,148.2 1,217.7
Employment 16810 1,5785 1,5242 13,838 15,719 14,021
Tax and Incentive to
358.5 315.1 308.0 349.0
Government
Net Profit/Loss(-) -121.2 133.4 5.0 8.3 -165.7 -156.4
*Up to 30/09/2020

Table 5.12 Performance of State of PSUs under Industries Department, Government of Kerala, by Sectors,
2015-16 to 2020-21 in Rs crore
Items 2015-16 2016-17 2017-18 2018-19 2019-20 2020-21
Chemicals (7 units)
Plan fund allocation 19.1 19.7 19.5 28.2 15.3 51.5
Turnover 1,153.6 1,266.6 1401.9 1,595.9 1,394.7 670.5
Net profit 13.0 28.2 223.3 189.1 63.4 6.1
Textile (8 units)
Plan fund allocation 29.7 34.8 23.8 22.2 20.5 33.8
Turnover 96.3 82.3 133.9 157.3 158.7 53.8
Net profit -72.3 -73.9 -90.9 -94.2 -115.5 -56.0
Engineering (6 units)
Plan fund allocation 6.0 12.9 25.9 30.5 9.4 34.2
Turnover 121.4 116.6 125.8 154.2 158.8 67.0
Net profit -33.7 -31.9 -44.8 -42.7 -42.2 -21.7
Electronics (3 units)
Plan fund allocation 1.5 2.8 2.7 10.6 0 17.7
Turnover 484.8 452.4 480.2 542.6 521.1 143.9
Net profit 13.4 -17.51 3.8 9.6 4.4 -11.0
 INDUSTRIAL DEVELOPMENT | 105

Electrical (4 units)
Plan fund allocation 18.5 15.5 17.9 32.9 5.5 46.3
Turnover 398.2 424.0 393.4 565.1 498.9 166.9
Net profit -47.3 -17.9 -34.2 -20.4 -34.8 -40.1
Traditional and wood based (7 units)
Plan fund allocation 14.0 4.9 7.1 7.5 4.5 11.05
Turnover 146.7 139.7 128.1 136.3 121.5 29.3
Net profit -20.9 -22.1 -30.1 -21.8 -22.2 -17.2
Ceramic (2 units)
Plan fund allocation 2.0 4.9 4.9 16.2 3.0
Turnover 5.5 4.7 5.3 8.2 10.99 8.93
Net profit -10.9 -10.9 -13.7 -9.0 -8.27 -6.08
Development (3 units in 2014-2017
and 2 after 2017)
Plan fund allocation - 5.5 - - 1.0 15.21
Turnover 393.2 235.2 252.4 283.1 283.6 77.8
Net profit 37.6 12.7 -8.4 -2.3 -10.5 -10.5

• PSUs under chemical and electronic sectors continuous production of handloom.

contributed to the better performance of State PSUs • Value of cloth purchased by Hanveev almost doubled
in the industrial sector in 2018-19. At the same from Rs 8.60 crore in 2015-16 to Rs 16.68 in 2019-
time, PSUs in the textile sector recorded losses, 20. Its sales turnover increased from Rs 19.03 crore
pulling down the overall performance of the State in 2015-16 to Rs 20.30 crore in 2019-20.
PSUs. The State Government has launched efforts • Modernisation of power loom co-operatives is
to revive the PSUs and help them emerge as agents picking pace. After the modernisation of looms,
of technological transformation of Kerala’s industrial productivity has increased. Earlier two looms were
sector. attended by one weaver. After modernisation, a
• The total value of production in the 42 State PSUs weaver could attend to 8 looms. Thus productivity
under the Industries department decreased from and wages of weavers has increased.
Rs 3,405.7 crore in 2018-19 to Rs 2,777.7 crore • The Government approved modernisation of
in 2019-20, registering a decline of 18 per cent. Malappuram Co-operative Spinning Mills,
Turnover of these State PSUs also decreased by 8.6 Cannanore Co-operative Spinning Mills,
per cent in 2019-20 compared to its previous year. Priyadarshini Co-operative Spinning Mill and the
Handloom Quilon Co-operative spinning Mill. The first phase
• Kerala handloom school uniform project. The of modernisation of Malappuram Co-operative
project envisages free supply of uniform material to Spinning Mill and Kannur Co-operative Spinning
schools in the Government sector. This project has Mill has been completed. The second phase of
been implemented by the Directorate of Handloom modernisation of the mill has started.
and Textiles in association with the Education Coir
Department, with key contributions from Hanveev, • Government of Kerala is implementing the “Second
Hantex and DIC. This project has energised all Reorganisation of Coir Industry” – a comprehensive
direct and indirect stakeholders in the handloom revival package to modernise the coir sector while
sector. Workers have benefitted from higher days of protecting the incomes of its workers. The total
employment and better wages. outlay of the package is around Rs 1,444.44 crore
• As part of Kaithari Suraksha Scheme, HANTEX which includes State funds and NCDC fund to
distributed inputs to about 5000 weavers to enable the tune of Rs 200 crore. Export of coir PSUs and
106 | KERALA DEVELOPMENT REPORT 2021

agencies in Kerala has increased from Rs 1,072.55 for acquiring the land parcels in Palakkad and Kochi
lakh in 2016-17 to Rs 1,425.86 lakh in 2019-20. comes to Rs1,578 crore, which is proposed to be met
• Implemented Price Stabilisation scheme – ensuring with the financial aid of KIIFB.
remunerative prices to producers. References
• Around 157 defibering units (DF) have been newly RIAB (2019), Report on Employment Creation in Textiles
set up across the State as part of the modernisation and Garment Manufacturing Sector in Kerala, Public
scheme with the production capacity (per eight hour Sector Restructuring and Internal Audit Board (RIAB),
shift) ranging from 8,000 husks to 40,000 husks. Department of Industries, Government of Kerala, May.
These include 50 units in the private sector. Sukumaran Nair, M.P. (2020), ‘Sustainable Industrial
• As part of the modernisation efforts, 15,000 Development of Kerala: Future Outlook’,
Kerala State Planning Board (2020), Report of the Expert
electronic ratts and 250 Automatic Spinning Mills
Committee on Initiatives in Healthcare Industry in
(ASMs) have been installed in the State. Coir yarn Kerala: in the context of the Covid-19 Pandemic, Kerala
production in the State increased from 7,800 MT in State Planning Board, August 2020
2015-16 to 20,000 MT in 2019-20. Centre for Management Development (2019), ‘Evaluation
• The State Government has taken steps to sign a MoU of Policies and Agencies for Industrial Development
with the University of Wageningen for developing in Kerala’, Report on a Study conducted by Centre for
coir composite boards on a commercial basis at a Management Development, Thiruvananthapuram, July
project cost of Rs 100 crore. Commercial production 2019.
of coir composite boards has commenced. Thomas, Jayan Jose (2020), Kerala’s Economic Growth:
• The Coir Department, Government of Kerala signed Trends and Opportunities, Unpublished document,
Indian Institute of Technology Delhi.
a MoU with 850 panchayats in 2019 to supply
Workshops on Industrial Development organised by Kerala
coir geo textiles to the latter. Coir geo textiles have State Planning Board
applications in soil and water conservation. Workshop on State Public Sector Units in Chemicals,
Kochi Bangalore Industrial Corridor (KBIC) Minerals and Allied Sectors
project Kerala State Planning Board, 23 June 2017.
State Government has approved the proposal for the Workshop on The Role of Local Self Governments in
development of the Kochi Bangalore Industrial Corridor Kerala’s Industrial Development Kerala State Planning
(KBIC) Project in Kerala. The State Government Board, 17 August 2017.
has appointed KINFRA as the Nodal agency for the Workshop on State Public Sector Units in Metal Products
and Engineering Industries in Kerala, Kerala State
acquisition of the land for this project. Government has
Planning Board, Government Guest House, Ernakulam,
accorded approval to KINFRA for the acquisition of 25 August 2017.
1351 acres of land in Palakkad for developing Palakkad Workshop for Evaluating the Prospects for the Growth of
Node as part of the KBIC Project. Government also the Pharmaceutical Industry in Kerala, Kerala State
proposes to develop GIFT city in Kochi as a part of Planning Board, 13 May 2019.
KBIC. Accordingly District Collector Ernakulam has ‘Workshop on Revival of Small and medium Scale Cashew
identified 543 acres of land in Ayyambuzha, Aluva for factories/units in Rebuilding the lost livelihoods’, Kerala
the proposed GIFT city project. The total expected cost State Planning Board, 24 June 2019.
 Chapter 6
Information Technology: The Highway to Growth
The Information Technology (IT) sector in Kerala economies. However, in varying ways, especially in
occupies today a significant space in the State’s economy South East and East Asia, and in India, the significance
and its importance has been recognised particularly in of IT in developing economies has been brought home
terms of its potential and significance in the future of clearly. India, in particular, has had a fairly unique
the State. This chapter examines some issues related to trajectory of development of IT, where the emphasis
the sector. was much more on software than hardware. But more
Introduction and Overview importantly, the development of IT in developing
IT is an integral element of the technology of the economies like India was driven in the first instance
twenty-first century. To describe it as the cutting edge by an IT sector that was very much export-oriented.
of technology, as was common in the last century, is However, subsequently, both domestic demand in
to underestimate the extent to which it has become some sectors and the realisation of the importance
the equivalent of the machine in the Industrial of e-governance have given a significant boost to IT
Revolution. Just as the production of machinery was at in the country. Nevertheless, the mainstay of the IT
the foundation of economic growth in general, and the industry in India is its export orientation, with exports
growth of industry in particular, and just as the advance continuing to lead domestic revenue by at least 3 to
of mechanisation in the twentieth century transformed 1. External dependence on hardware is also significant
production, the IT revolution has outperformed its and not diminishing in absolute terms, amounting in
original expectations. This is especially borne out by recent years to between a third and a half of the gross
the manner in which the new technology is increasingly export revenue.
becoming the foundation of the organisation of all The IT sector in Kerala presents some particular
aspects of production, circulation, and distribution of issues that are important to recognise, even if there are
goods, especially in the advanced economies. many that are in line with the all-India picture. The
IT, in contrast to mechanisation, is characterised by latter is true in the export-oriented and foreign market-
a dual structure, commonly referred to as software and directed nature of the industry in Kerala. The software
hardware. It is arguable which aspect is more dominant side of the IT sector is even more heavily dominant in
and likely to be so for the future, and at the current the State than in the rest of the country, with only a
pace of development it is perhaps prudent to not draw limited presence in electronics manufacturing.
any definitive or rigid conclusions. While both aspects Kerala possesses some very significant advantages.
have their own trajectories of development, it is also The State has a remarkable-level of mobile/telephone
evident that they constantly interact and influence each penetration, with 32 million households being
other. connected. Internet penetration through broadband
Two recent announcements, one on the use of and mobile is also very high, 20 per cent and 15 per cent
the latest machine learning methods in the control of respectively, and Kerala leads the country in this respect
stratospheric balloons for internet connectivity, and the as well. According to an impact assessment report of
other on the use of deep neural network methods to the Digital Literacy Mission, Kerala has the highest-
make a breakthrough in understanding how proteins level of digital literacy by various measures in the 14-49
fold, demonstrate the tenuous nature of the hardware/ age group, while it ranks very high in other age groups
software distinction. This dual structure is reflected in as well. Kerala’s achievements in literacy and school
the nature of the IT industry, where the global leaders education have clearly stood the State in good stead in
among IT firms and corporations have increasingly achieving such-levels of literacy, reflecting the emphasis
a stake in both aspects, even if in their origins they on computer education in the school curriculum.
focused on only one of them. Another striking feature of Kerala’s IT sector is the
For developing economies, the IT revolution has emphasis on e-governance and the large number of
posed a peculiar challenge. The relatively slow pace relevant initiatives involving all aspects of governance
of mechanisation, and indeed industrialisation, in and all categories of stakeholders. This is in keeping
many developing economies appeared to imply that with the people-centric thrust of development in the
the new technology would have limited scope in these State that is periodically reinforced by the presence of
108 | KERALA DEVELOPMENT REPORT 2021

democratic and progressive trends in the polity that are State has had to face over the last few years. Apart from
also able to be in direct charge of governance periodically. the overall stringency in resource mobilisation that
As a consequence, there is significant public sector States face, two successive years of floods and landslides
effort in Kerala in e-governance and related initiatives rendered it difficult for the Government of Kerala to
to promote digital access to the citizenry. The State has undertake even the normal course of investment that
taken the lead in declaring access to the internet a basic it devoted annually to the IT sector, though the sector
human right, a move that also has found strong support suffered only a moderate direct impact due to the
in legal decisions. The development of digital literacy floods. Following on this, the body blow of the Covid-
and e-governance can certainly be expected to have a 19-induced recession has seriously affected the sector.
multiplier effect on growth. However, this alone would Nevertheless, substantial gains in various dimensions
hardly be sufficient for the role of IT as the engine of of the IT sector have been registered under the
the next stage of development of the State. present Government. The sector has also undoubtedly
The challenge before Kerala today is to leverage this benefited from the continued commitment to planning
aspect of the State's human development advance for that the State has held to steadfastly under the present
the growth of the State’s economy, especially in the IT Government. In the subsequent sections we present
sector. Currently, Kerala’s IT footprint in the national in detail some of the main policy features and major
IT sector is reasonably significant given the relative size initiatives and developments in this sector over the
of the State’s economy. A more all-round view would period of the current 13th Five-Year Plan.
suggest that there is an urgent complementary need, Approach for 13th Five-Year Plan
alongside promotion of digital literacy and e-governance, The salient features envisaged in the growth of the
to develop the IT industrial sector. The current-levels sector under the 13th Five-Year Plan were as follows:
of growth are certainly promising but clearly the gaps 1) Employment creation: Creation of more
between Kerala’s potential and promise as well as the employment opportunities through generating one
gaps between Kerala and the leading States in the IT lakh jobs during the 13th Plan.
sector need to be bridged expeditiously. Secondly, the 2) Human resources: Making available trained human
hardware or electronics manufacturing sector is also resources through ensuring skill development
woefully inadequate and needs urgent attention so that activities in all educational institutions.
at least a minimal electronics manufacturing supply 3) Startups: Development of an ecosystem for startups
chain is available in the proximity of the major software through the promotion of constant innovation
centres in the State. through new startups, thereby developing new
One very positive sign for the future is the active products and services.
startup ecosystem in the State that has been nationally 4) Development Missions: Enabling IT for the
recognised for its efforts. The extent to which such management and monitoring of the activities of the
investment in the IT industrial sector can be regionally four missions of the Government of Kerala.
or spatially decentralised remains open, despite the 5) Public access: Public access to high speed digital
State’s commitment in recent years to a hub-and- services by providing wi-fi hotspots.
spoke model that sought to have a more decentralised 6) Data platform: Integration of wide variety of data of
investment, that did not always live up to its promise. Government departments, agencies and institutions
The positive externalities of agglomeration and on a single platform.
clustering cannot be neglected, though an active land-
use and land-acquisition policy is needed to ensure the Vision
spatial requirements of rapid and large-scale growth. The vision of the sector was to establish Kerala as a
The triple helix configuration of industry, knowledge-powered digital society by 2020 through
Government and academia is crucial for the development application of digital technologies within the governing
of the IT sector. In Kerala, the establishment of a Digital principles of freedom, inclusion, transparency, safety,
University around the IIITM-K is a welcome step, but and security.
much more needs to be done to evolve a strong research Goals
and development and higher education infrastructure 1) Kerala State Information Technology Mission
of high quality in the State. (KSITM)
The IT sector in Kerala has undoubtedly been • Enable a harmonised, interoperable,
affected by the macro-economic headwinds that the interconnected, and integrated Government.
 INFORMATION TECHNOLOGY | 109

• World class infrastructure, integrated e-service IT Policy 2017

architecture, digital citizenship. The IT policy announced by the Government in
2) IT parks 2017 aims to generate projects to mould Kerala into
• Establish Kerala as a preferred IT hub for emerging a knowledge-based society. The main objective of the
technologies. policy is to establish Kerala as a leading IT destination
3) Kerala Startup Mission and generate direct and indirect employment
• To be a leading knowledge start-up ecosystem in opportunities in the sector, build necessary technological
India. infrastructure for creation of an environment favourable
• Creating a sustainable and inclusive ecosystem to ICT development, enhance the necessary human
for developing knowledge-based startups through capital required to both produce and use innovative
multiple interventions. technologies through education and skill building
4) Indian Institute of Information Technology and and establish Kerala as an IT industry destination by
Management-Kerala (IIITM-K) attracting investments from within and outside Kerala.
• To be an iconic knowledge institution focusing on The policy aims to:
emerging technologies. • Establish Kerala as a preferred IT and ITeS hub and
• To develop as a sustainable institution with national leverage ICT to contribute significantly to GDP and
repute and global recognition. employment.
5) International Centre for Free and Open Source • Create schemes to attract the global IT players to the
Software (ICFOSS) parks.
• Leverage FOSS for enhancement of quality of life • Create 1 crore square feet built-up space and provide
of the people through development of inclusive 2.5 lakh jobs.
and assistive technologies. • Utilise the capabilities of cooperative sector and the
6) Kerala State Information Technology Infrastructures capital from NRIs to develop the parks.
Limited (KSITIL) • Maintain a steady annual growth of exports in IT and
• Transform KSITIL into a top-class agency ITeS service and products.
for development of physical and electronic • Create a science and technology driven ecosystem for
infrastructure required for IT sector. research and development and innovation.
7) Hardware Mission. • Increase the quality and competitiveness of small
• Act as a single point of contact for international and medium IT enterprise and connect them to the
connects and enable growth of electronics and international market.
hardware industry in the State. • Foster technology entrepreneurship culture and
New initiatives of 13th Plan create a sustainable start up ecosystem by creating
1) Skill Delivery Platform Kerala: This is one of the technology hubs.
major initiatives taken up in the 13th Plan to help • Provide inclusive, affordable, and accessible electronic
engineering colleges in the State to improve the service delivery system for public services.
employability skills. This platform links engineering • Ensure universal open access to data, information,
colleges in the State with IT parks via tele-presence and knowledge resources in a digital domain.
network connecting 150 hi-tech classrooms to deliver • Make the State 100 per cent e-literate and utilise ICT
skills training to approximately 50,000 students in a in all walks of life to ensure equitable and inclusive
year. development of the society.
2) Kerala Fibre Optic Network (KFON): The aim • Give special emphasis to promote research and
of the project is to build a scalable and resilient core development in Malayalam language computing and
network and create an access network to connect more develop tools for the same.
than 30,000 Government institutions comprising • Develop a talent pool within the State in skills for
offices and educational entities and collaborate with sunrise industries and human resources capabilities
regional service providers to provide free internet to for emerging and futuristic technologies.
20 lakh economically backward households through • Make IIITM-K and ICFOSS as centres of excellence
this network. This will be provided through a new for research and development and studies in IT sector.
optic fibre pathway created in parallel to KSEB electric • Strengthen IT at schools.
power network. • Create a safe framework for digital living in terms
110 | KERALA DEVELOPMENT REPORT 2021

of cyber security, privacy and freedom of internet, phase of 1000 wi-fi hotspots and nearly 15 lakh
conduct training and awareness programmes, and unique mobile users are availing the facility. Data
promote electronic transactions. consumption per day is up to 8 TB.
• Leverage IT in the day-to-day operations and in the • About 196 lakh square feet built up space, Rs 4,982.1
delivery of services in hospitals. crore investment, Rs 22,204.57 crore turnover, and
• Adopt open source and open technologies in public 109,740 jobs were created through 923 companies
domain and promote the same in SMEs and industry. operating in the three IT Parks.
• Manufacturing of electronics goods/components will • 2706 Akshaya centres are functioning across the State
be made possible among all. giving employment to 7547 persons.
• Strengthen the operation of Keltron so as to regain • Under the banner of Kerala Startup Mission and
the prominence it had in the past. several of its sector-specific partner organisations,
• Research and development institutions shall be there are 2900 registered startups with more than 4
established in the area of convergence of IT and lakh square feet of incubation space, Rs 1500 crore
biotechnology and technology shall be utilised to external investment, value creation of Rs 1,00,000
improve the quality of exports in fruit and vegetables, crore, created 25,000 employment and more than
fish, and spices from Kerala. 230 Innovation and Entrepreneurship Development
• Create an infrastructure to enable women to work in Cells.
the IT sector ensuring them safe transportation and • Kerala ranked as the top performing State in the
secure environment at the work place. Department for Promotion of Industry and Internal
Performance of IT Sector in Kerala up to 2020 Trade’s (DPIITs) State Startup ranking.
• According to the Internet and Mobile Association of • Availability of resources for startups is more than Rs
India (IAMAI) report titled “India Internet 2019,” 1000 crore through Fund Scheme.
Kerala’s internet penetration rate is the second • IIITM-K established 10 research centres and
highest in the country (54 per cent), with Delhi published 65 research papers in national and
NCR topping the list with 69 per cent penetration. international journals.
The report also notes that Kerala, Tamil Nadu, and • Ten GIS-based web application/portal projects were
Delhi have the highest proportion of female internet started for various departments and six other projects
users. are under development.
• Kerala is the first State to make internet access a basic • Three Android-based GIS mobile applications have
right. Kerala Fibre Optic Network (KFON), costing been developed and deployed.
Rs 1548 crore project initiated by Government of • Various GIS based workshops for Government
Kerala for providing seamless internet connectivity departments, schools, universities, and colleges were
to Government offices and free internet connectivity conducted, in addition to provisioning of internship
to 20 lakh economically backward households is facility for students.
nearing completion. A new joint venture company • KSUM received international recognition as the
(KFON Limited) was formed in the share holding World No.1 Public Business Accelerators in the world
pattern of 49:49:2 in favour of KSEBL, KSTIL, and and national recognition as top performer (top 3) in
Government of Kerala as the SPV for the project. Government of India State Startup Ranking, 2019.
• The e-district Kerala, a lighthouse project in India, • In 2020, 399 startups have registered in Kerala,
has touched 4 crore mark with respect to issuing showing a growth of 18 per cent over the last year.
various certificates to the citizens through Akshaya Currently among startups, Maharashtra is first with
centres. 5477 active startups and Kerala is ninth with 1292
• The revamped Kerala Spatial Data Infrastructure active startups.
(KSDI) Portal was launched in 2017 and Kerala • Maker Village of IIITM-K was awarded with “Smart
became the first State in the country to start geo- Incubator of the Year 2020” by India Smart Grid
tagging of Government offices. The KSDI has more Forum (ISGF).
than 300 beneficiaries including users from 39 • Technopark has become the largest employment base
Government departments. campus in Kerala and with the commissioning of
• Wi-fi hotspots were established in 1,888 locations Technopark Phase III, it became the largest IT park
across the State, and the average unique users per in India with 380 acres of land, 9.7 million square
day are 32,000. Completed installation of second feet built-up area.
 INFORMATION TECHNOLOGY | 111

• On January 18, 2020, Government of Kerala • Kerala was declared as the first Digital State in India
upgraded IIITM-K to “Kerala University of Digital by Government of India in 2016.
Sciences, Innovation, and Technology” a unique • Hi-speed rural broadband network was first
Centre of Excellence of global repute. commissioned in India at Idukki.
Financial Performance of IT sector from 2016-17 to • First State in India to issue over 4 crore e-certificates.
2020-21 • 100 per cent of the gram panchayats are connected
through optical fibre network.
Table 6.1 Plan outlay and expenditure in Rs crore
• National E-Governance Award 2020, Elets eIndia
Annual Award 2020, NCEG Award 2019, Governance Now
Outlay Expenditure Percentage
Plan Award 2019, Digital India Award 2019, SKOCH
2016-17 479.38 328.10 68.44 Award 2019, Tech Sabha Award 2019 are some of
2017-18 549.3 350.1 63.7 the laurels received by KSITM.
2018-19 587.6 269.1 45.8
Key activities of KSITM
2019-20 574.38 188.04 32.7
Kerala has been a forerunner in e-governance and
2020-21 500.10 196.38 39.3 mobile governance by promoting and developing core
Source: Budget documents, various years, Government of
infrastructure and e-literacy programmes.
Kerala
1) K-Fi/Public wi-fi: K-Fi is a free wi-fi project that
Performance of IT sector agencies aims to establish 2,000 wi-fi hotspots across the State
The agencies involved in the implementation and to provide free internet to the citizens of the State.
promotion of Information Technology in the State Out of which, wi-fi hotspots have been established
are Kerala State Information Technology Mission in 1888 locations across the State. Completed
(KSITM), Indian Institute of Information Technology installation of second phase of 1000 wi-fi hotspots
and Management Kerala (IIITM-K), International for free and provided 1 GB data to citizens on daily
Centre for Free and Open Source Software (ICFOSS), basis for each mobile number. Nearly 15 lakh unique
Technopark, Infopark, Cyberpark, Kerala State mobile users avail the facility, up to 88,000 sessions
Information Technology Infrastructures Limited per day and up to 8 TB data usage per day. Users
(KSITIL), Kerala Startup Mission (KSUM), IIIT- K increased from 13,000 to 47,000 per day between
Pala, and C-DIT. completion of phases I and II. Installation of wi-fi
1. Kerala State Information Technology Mission hotspots at selected coastal sites and the remaining
(KSITM). Kerala State IT Mission is an autonomous sites are in progress.
nodal IT implementation agency of the Department of 2) E-office aims to conduct office procedures
Information Technology, Government of Kerala, which electronically thereby transforming Government
provides managerial and technical support to various offices to paperless offices and bringing out the
initiatives of the Department. KSITM performs benefits of digital communication that ultimately
diverse roles including, enactment of ICT-related leads to faster decision making. E-office has been
policies, development of guidelines and standards for implemented in all departments in the Secretariat, 66
e-governance, ICT facilitation for the Government Directorates/Commissionerate/other Government
entities, provide end-to-end support and guidance to offices, all Collectorates, 17 Sub-Collectorates/
State departments in digitisation efforts, act as a bridge RDOs. The Government has decided to roll out
between the Government and industry, undertake e-office to grassroots-level in taluks and village
capacity building initiatives and bridge the digital offices in coming years. Electronic file movement
divide, establish and sustain common IT Infrastructure per month is more than 5 lakh. The training on
and take up various e-governance initiatives. The focus e-office imparted to more than 30,000 end users.
activity is delivering the best of the digital services to In 2019-20, e-office has been implemented at 13
the citizens keeping in mind “Citizen First” approach. RDOs/taluks/directorates/other offices.
As a result of these proactive policies and projects, 3) Core infrastructure for e-governance in the State
Kerala achieved major progress in the transformational consists of Kerala State Wide Area Network
journey towards “Digital State.” (KSWAN), Secretariat Wide Area Network
Some of the remarkable achievements, major awards (SECWAN), State Data Centre, and State Service
and accolades of KSITM are shown below. Delivery Gateway (SSDG). KSWAN is the
112 | KERALA DEVELOPMENT REPORT 2021

backbone of the State Information Infrastructure will bring together all the services rendered by
(SII), connecting Thiruvananthapuram, Kochi, different Government departments under one
and Kozhikode extending to 14 districts and 152 umbrella. Currently, the app provides 101 services
blocks panchayats and 63 mini-civil stations/ of 18 departments of the State.
revenue towers across the State. Around 4,000 6) e-Government Procurement (e-GP) is being
offices of Government Departments are connected implemented in the State, 54 Government
to KSWAN through wireless and a larger number departments and 335 PSUs/Autonomous bodies/
through leased lines and LAN. All the gram Government agencies are utilising the common
panchayats of Thiruvananthapuram District are e-Procurement system. In 2019-20, 113,303 tenders
connected through the National Information were floated using this platform and the total value
Infrastructure (NII) pilot project by integrating of tenders floated was Rs 39,848 crore. From April
KSWAN with National Optical Fibre Network. 2019 to March 2020, 1027 number of officials were
Around 500 offices including Akshaya centres trained. In 2019-20, 617 offices migrated to the
were connected as part of the NII pilot project in e-Procurement System and 2769 officials registered
Thiruvananthapuram. State Data Centres (SDCs) in the e- Procurement system.
are the heart of e-governance framework of the 7) Friends Janaseva Kendras have been established in all
State, hosting various applications and websites of the 14 district headquarters. In 2018-19, an amount
the Government entities and provisioning associated of Rs 148.1 crores revenue for the Government
services. The objective of the State Portal and SSDG was collected. The Government plans to make all
project is to provide a “one- stop” shop to the citizens services currently available through Akshaya to be
for Government services, both informational and made available also through Friends without service
transactional. Kerala State Portal “https://kerala. charges. It is a single window “no queue” integrated
gov.in” provides all Government related information remittance centre, where the citizens have the
and departmental services routed through services
opportunity to pay all taxes and other dues to the
gateway (SSDG). A new website layout is designed
Government, under one roof, at no extra cost. On
by interacting with various stakeholders and
an average, 1000 to 1050 people visit each centre
intellectuals for accommodating all the contents
every day. A new software with more facilities and for
from kerala.gov.in, with around 100 additional
facilitating online services for replacing the existing
new pages and satisfying the Government of India
software called FREES (FRIENDS Re-engineered
guidelines for websites and State Portal Framework
Enterprise Enabled System) was developed at the
guidelines.
Friends Janasevana kendram.
4) e-District, a State Mission Mode project under
Digital India, targets delivery of high volume citizen 8) Akshaya is an innovative project launched on
services provided by the district administration, November 18, 2002 to bridge the digital divide.
at taluk or village-level, through back end It works on public private participation mode. In
computerisation to enable online availability of the initial stages, the objective of the project was
these services through Common Service Centres to make at least one person in a family e-literate.
(CSC) and State portal. During 2019-20, the Gradually the focus of Akshaya shifted to citizen
number of applications received was 8,360,940. Of service-centric mode. Akshaya project acts as the
this, 7,630,945 applications were approved and the enrolment agency and conducts Aadhaar enrolment
number of applications rejected was 61,026. Some through the Akshaya centres.
of the major services availed through e-District • 2,706 Akshaya centres are functioning across the
project are: State giving employment to 7,547 persons.
• Implemented 25 Revenue Certificate Services across • More than 1,700 Akshaya Centre Act as banking
the State kiosks for different banks.
• RTI and Public Grievance Services. • 5.5 million citizens got enrolled under UID through
• Online utility bill payment systems enabled in Akshaya centres. Enrolment under UID through
e-District portal. Akshaya is 92.7 per cent against the national average
• Various services of other Departments are also of 62 per cent. Akshaya is also the premier agency
online/getting integrated with the e-District portal. in UID enrolment having generated 75 per cent of
5) M-Keralam, the unified mobile application which total UIDs in Kerala.
 INFORMATION TECHNOLOGY | 113

Table 6.2 Details of Akshaya centres in Kerala 2. Indian Institute of Information Technology and
Management-Kerala (IIITM-K). The Indian Institute
Year No. of No. of Turnover of Information Technology and Management-Kerala
Akshaya persons (in Rs was set up in 2000 as a premier institution of excellence
centres employed crore) in science, technology and management. It emphasises
2016 2628 7476 46.1 quality education to students and develops professionals
2017 2679 7774 65.3 and leaders of high calibre imbued with values of
entrepreneurship, ethics and social responsibility. The
2018 2906 7942 73.6 institute focuses on education, research, development
2019 2716 7577 43.4 and training in basic and applied information
technology and management.
2020 (as on
IIITM-K is the implementing agency for the various
September 2706 7547 41.9
e-governance initiatives of Government of Kerala and
30, 2020)
Government of India. It coordinates national and
9) Kerala State Spatial Data Infrastructure (KSDI) is international conferences and workshops to provide
a mechanism to provide geospatial data sharing at all opportunities to students to interact with world class
levels of Government, the commercial sector, the non- experts and researchers.
profit sector, and academia. The major achievements of There are four specialised post graduate programmes
the project are as follows. (MSc) being offered by the Institute in computer
• KSDI geoportal is upgraded using Erdas Apollo science with specialisation in cyber security, machine
2016 web server with new features. intelligence, data analytics, and geospatial analytics.
• KSDI collected data from 20 departments with Along with the above four specialised courses, the
more than 400 layers in various file formats and Institute also offers MPhil ecological informatics, MPhil
after quality checking, uploaded 59 seamless layers. computer science, and PG diploma in e-governance.
• Presently, KSDI has more than 300 beneficiaries The MPhil and MSc degree are awarded by Cochin
including users from 39 Government departments. University of Science and Technology (CUSAT) and
Government of Kerala was assigned as the State post graduate diploma by Directorate of Technical
registrar for Aadhaar enrolment by UIDAI. Education, Government of Kerala.
Electronics and IT Department of Kerala was
approved as the nodal Department and KSITM was 3. Digital University. On January 18, 2020, the
approved as the nodal agency for Aadhaar enrolment Government of Kerala upgraded IIITM-K to make the
in the State. In addition, UIDAI has approved KSITM “Kerala University of Digital Sciences, Innovation and
as the Authentication User Agency and e-KYC User Technology.” The University started functioning from
Agency. Aadhaar based services like DigiLocker are the new campus of IIITM-K in Technocity and the
also being rolled out to departments. At present, there new building was inaugurated in February 2021. The
are about 900 Permanent Enrolment Centres, 1500 University is envisaged to become a unique centre of
Child Enrolment Centres, and 1450 Update Centres excellence of global repute by conducting education,
by Akshaya CSCs to facilitate Aadhaar Enrolment and research and extension activities in areas of digital
changes to details in Aadhaar. technologies, science and humanities. The University
10) Using VC infrastructure, KSITM was able is aiming to create capacity building in masters
to conduct around 750-800 VCs this year. The and doctorate programmes in the areas of artificial
management of VC sessions, upkeep of VC equipment intelligence and natural language processing, internet
and studios are with the support of C-DIT. of things, electronic systems and automation, imaging
DigiLocker service is currently integrated for the technologies, data analytics and big data, cyber security,
following: block chain, ecological informatics and geospatial
• e-District project – revenue certificates. analytics. The University will start schools in the areas
• Food and Civil Supplies Department – ration card. of computer science and engineering, digital sciences,
• Pareeksha Bhavan – Secondary School Leaving electronics systems and automation, informatics, digital
Certificate (SSLC). humanities and liberal arts. The new University will
• Motor Vehicle Department – driving licence and initially create about 200 job opportunities in academic
vehicle registration. and research-level.
114 | KERALA DEVELOPMENT REPORT 2021

The pass outs from IIITM-K hold commendable electronic products in divergent areas such as
positions in internationally reputed IT companies automation, robotics, drones, internet of things,
such as JFWTC-General Electric, Accenture, autonomous vehicles, biomedical instrumentation,
Amdocs, Siemens, Ernst and Young, ARS Software, energy management, etc. Most of the startups are
Allianz Cornhill, IBM, IBS, Infosys, Tata Elxsi, Tata leveraging cutting edge technologies – machine
Consultancy Services, UST Global Technology, and learning, artificial intelligence, augmented reality/
Wipro. The new campus of the Institute at Technocity virtual reality, etc. to make their products innovative
shall facilitate and promote studies, research, and and globally competitive.
incubation in Information Technology and its
4. Technopark. Technopark was set up as an
application domains. The campus would have a built
autonomous organisation fully owned by Government
up area of 48,161 square metres on completion.
Major awards and recognition of IIITM-K are: of Kerala to create global standard infrastructure and to
• Maker Village of IIITM-K is awarded with “Smart provide total support required for development of high
Incubator of the Year 2020” by India Smart Grid technology industries. It was formally dedicated to the
Forum (ISGF). Nation on November 18, 1995. Since then Technopark
• Maker Village awarded as “Incubation Centre has been growing steadily both in size and employees
of the Year with Prominent IP Culture 2019” by strength.
IP Promotion Outreach Foundation (IPPO), With the commissioning of Phase III, Technopark
Ahmedabad. will become the largest IT Park in India with 380
• Hardtech 2019, Future and the Design Summit acres of land, 9.7 million square feet built up area.
provided an unparalleled platform for the startups Technopark through its companies, currently provides
to showcase their competence. direct employment to 62,000 IT employees and offers
• Evelabs of Maker Village got CII Design Excellence an indirect employment for another 1,50,000 persons.
award. With the launch of Technocity project in
• Sastra Robotics of Maker Village got DST ISBA Kazhakuttom, the largest integrated-IT Township in
Startup Award. 424 acres of land, the Kazhakuttom-Kovalam (NH-66)
• Irov: IESA Spacetronics/Deftronoics of Maker has become the first IT Corridor in Kerala. Technopark
Village got award for the Promising Startup of the has charted out an ambitious target of creating 50,000
Year 2018. new jobs by 2021. Technocity project is a flagship
• Maker Village is the finalist of Nava Design and project by Technopark. Technocity project is broadly
Innovation: Global Impact Challenge 2018. divided into two such as IT integrated township and
• Resnova Technologies of Maker Village got South knowledge city, which is designed to have six Centres
India’s Vibrant young entrepreneur award by TOI of Excellence (CoEs) in emerging technologies to create
Edex. a sustainable and healthy IT ecosystem by building
• Chief Ministers Project Monitoring System won the a startup habitat. CoEs will be based on emerging
Technology Times of India Sabha National Award. technologies in IT such as i) cyber security, blockchain,
• The startup companies at Maker Village, which ii) Fintech and blockchain, iii) artificial intelligence
is the largest exclusive hardware incubator in the and machine learning, iv) virtual/augmented reality, v)
country, are developing state-of-the-art hardware e-Mobility, and vi) space science.

Table 6.3 Physical achievements of Technopark, 2015-16 to 2019-20

Particulars 2015-16 2016-17 2017-18 2018-19 2019-20
Total turnover (in Rs crore) 12000 12000 14000 14000 15000
Total export (in Rs crore) 6250 5000 6452 7000 7350
Total investment (in Rs crore) 4970 4970 4970 4979 4979
Total employment (in no.) 51865 52746 56000 60000 62000
No of companies 390 370 400 410 450
Total land (acres) 330 760 760 770.2 769.84
Total built up space (in lakh square feet) 72 93 97 97 103
Source: Technopark
 INFORMATION TECHNOLOGY | 115

Technopark currently owns 20 IT buildings within 5. Infopark. Infopark, Kochi is the second largest IT
the campus. The built-up space in the Technopark hub in Kerala with spokes at Cherthala and Thrissur.
has increased from 72 lakh square feet in 2015-16 The objective of Infopark is creation of the state-of-the-
to 102.7 lakh square feet in 2019-20, out of which art infrastructure facilities such as space for IT/ITeS
Technopark has created 32.8 lakh square feet areas for companies, supply of power, water and connectivity.
industrial modules and total built up space completed Since its inception in 2004, Infopark and its co-
by companies is 70 lakh square feet. developers created over 9 million square feet builtup
Details of the major events held by IT parks during space and have provided employment to over 47,000
the last 4 years are:  IT Professionals through 427 IT companies who have
i) #FUTURE 2018 was the first conclave based on taken space in its Parks.
digital disruption conducted in Kerala. It was Infopark has five campuses which is spread over
organised on March 22 and 23, 2018 at Hotel Le 323 acres under various phases of development. In
Meridien, Kochi. Roughly 1800 attendees attended case of Infopark Technology Business Centre, a built
these sessions over the two days. up partly fitted space of 25,845 square feet at Kaloor
ii) Global connect sessions in the US, Europe, and International Stadium was taken over from KSITM in
Dubai. Many company executives attended these the year 2013. Infopark undertook necessary balance fit
events and the following multinational companies outs, modifications/rectifications in the fitted out space
have engaged with Kerala either by establishing a and now the facility is mainly used for providing office
facility or by participating in Government initiatives. space for startup companies.
Existing companies like Allianz, Infosys, TCS, CTS Major achievements of Infopark are:
have been engaged through these events and have been • Commissioned 500 kwP solar power plant. This can
pushed to expand as well. Notable success in this is generate around 4 lakhs units/year, thereby a saving
Allianz which has set up a Global Centre of Excellence of around Rs 24 lakh per year in electricity bill.
for blockchain projects in Thiruvananthapuram. This • The total employee strength increased to 47,000. In
provides high-end technology-centred employment for 2018-19 it was 40,000.
about 30 professionals. Big MNCs which came to the • The number of IT companies increased to 427. In
IT parks in Kerala include Nissan Digital, Way.com, 2018-19, it was 392.
H&R Block. • New IT building by M/s Claysys group completed
In Technocity, a new building named “Kabani” with and occupied.
a total area of 2 lakh square feet was inaugurated in • Total export revenue increased to Rs 5,200 crore. In
February 2021. This new building will provide more 2018-19, it was Rs 4,700 crore.
than 2000 new employment opportunities. • Settled Land Acquisition and Resettlement (LAR)

Table 6.4 Multinational companies that engaged with Kerala

Company Employment in Kerala Other engagements
Tech Mahindra 350 (Thiruvananthapuram)
Cisco – ThinQbator – Startup tinkering
facility in IIITM-K.
Smart Village (VKC) Initiative
through Kerala IT Mission
Teranet 150 (Thiruvananthapuram) –
IQVIA 300 (Kochi) –
Byjus Office requested in Technocity. Yet to start. –
E&Y Scaleup This is an ongoing process. Approximately –
more than 500 people have been added in the
last couple of years.
Wipro IIoT centre 50 staff –
University of – Tie-up with Kerala Startup Mission
Illinois, Chicago and ICT Academy for skilling
116 | KERALA DEVELOPMENT REPORT 2021

Table 6.5 Physical achievements of Infopark

Particulars 2015-16 2016-17 2017-18 2018-19 2019-20
Total turnover (in Rs crore) 3200 3200 4013 6606.75 7200
Total Employment (in number) 32800 33116 37000 40000 47000
Number of companies 282 298 396 392 427
Total land (in acre) 321.86 323 323 323 323
Total built up space (in million square feet) 6.96 6.6 8 9 9
Source: Infopark
liability in connection with Phase II land acquisition Association of India (IAMAI) established app
as per court order there by saving interest cost. incubation hub, first of its kind in Kerala.
6. Cyberpark. Cyberpark was established in the lines • Twenty four startup companies became operational
of Technopark in Thiruvananthapuram and Infopark in Cyber Park and created 127 IT jobs.
in Kochi based on a hub and spoke model. It was • Created a Centre of Excellence for mobile
set up to bridge the IT infrastructure gap along the incubation hub in Cyberpark.
west coast starting from Kochi to Kasaragod. The • Created around 570 direct jobs in the campus.
objective of Cyberpark is to provide cost effective and • In 2019-20, total investment was Rs 3.12 crore
top of the line infrastructure to the IT/ITeS investors with a total turnover of Rs 4.572 crore.
and thereby encouraging, promoting and boosting • Export revenues have been increased to Rs 17 crore.
the export of software/software services and creating 7. Kerala State IT Infrastructure Ltd (KSITIL). KSITIL
employment opportunities in the Malabar region. It is a public limited company formed for the creation
is the responsibility of Cyberpark to interface between of the infrastructure for IT/ITeS in the State. The
Government and Industry, interact with potential company leverages the valuable land assets owned by
investors, strengthening the IT/ITeS base, holding the Government and through viable financial models,
promotional campaigns, developing human resources generates funds for building the IT Infrastructure in
for IT and ITeS. Kerala State IT Infrastructure Limited the State in a Private Public Participation model.
(KSITIL) holds the ownership of the entire area of 43 The business model of the company is to acquire
acres of land at Kozhikode Cyberpark. land and develop basic infrastructure facilities like
The major achievements of Cyber Park are: electricity, water, road and compound wall in the
• First IT Building “Sahya” (2.88 lakh square feet) area, obtain SEZ status and other such Government
completed and started operation. Spaces have been approvals that may be required and then allot land to
allotted for 23 companies. private developers for development of either IT SEZ or
• Total investment of Rs 3.12 crore with a total IT parks.
turnover of Rs 16.78 crore including exports worth Major projects of KSITIL are Kozhikode IT Park,
Rs14.95 crore. Kannur IT Park, Kasaragod IT Park, Kollam IT Park,
• Forty one companies started operation in SEZ and Koratty IT Park, Cherthala IT Park, Ambalapuzha IT
created around 560 direct employments. Park, Infocity Pala, IIIT-Kerala and Technolodges.
• Cyber park in association with Internet and Mobile Some of the major projects of KSITIL are as follows:

Table 6.6 Major physical achievements of Cyberpark, 2015-16 to 2019-20

Particulars 2015-16 2016-17 2017-18 2018-19 2019-20
Total turnover (in Rs crore) 3.96 6.65 10.68 16.78 4.57
Total export (in Rs crore) 3.96 6.65 10.68 14.95 29.29
Total investment (in Rs crore) 0.33 0.85 2.39 3.12 3.12
Total Employment (in number) 55 112 266 558 748
Number of companies 4 8 13 23 46
Total land (in acre) 166.52 42.49 43 43 43
Total built up space (in lakh square feet) 2.88 2.88 3.0 3.0 3.0
Source: Cyberpark.
 INFORMATION TECHNOLOGY | 117

i) Skill Delivery Project, Kerala: SDPK is a prestigious • Launched assistive technology products such as
project assigned to KSITIL by Government of Kerala. T-slide mouse, flip mouse, and on-screen Malayalam
The objective of the project is to bridge the gap between keyboard.
students and industry. SDPK consists of a virtual • FOSS cell co-ordinators meet was conducted and 45
platform with teleconferencing system being installed co-ordinators attended.
in all the 150 engineering colleges and 3 studios, which • Training provided to government employees on
are being setup as part of the project. As part of the FOSS solutions and malayalam computing in 62
project Government of Kerala is setting up Hi-Tech batches. 1700 employees participated.
classrooms with a minimum seating capacity of 60 • International conference Swathanthra 2017 in which
students. 300 students and professionals participated.
ii) Kerala Fibre Optic Network (KFON): KFON, a • Completed first phase of Malayalam screen reader for
State-wide optical fibre network capable of providing visually challenged with DTE.
high-speed connectivity to all government and • Conducted 5 women hackathon sessions, 1 winter
educational institutions, offer free internet to 20 lakh school for women, 2 back-to-work programmes, and
economically backward families and subsidised internet 2 faculty development programmes.
for others by leveraging KFON Infrastructure. It shall • Hardware team conducted international workshops
act as the perfect platform for the State to pioneer in and conducted 2 summer camps for school students.
IoT and other emerging technologies like artificial • Designed a localised version of Tablexia, a modern
intelligence, and block chain and give impetus to educational application aiming to support the
innovation and entrepreneurship. development of cognitive abilities, primarily for
iii) Village Knowledge Centres works at Dharmadom children who are differently abled.
• Completed Gcompris Malayalam website and
and Taliparamba: The work involves the construction of
Malayalam audio to Gcompris applications project
Village Knowledge Centre buildings using Glass Fibre
work.
Reinforced Gypsum (GFRG) panel in 15 panchayats.
• Under fellowship programme, 8 out of 15 fellows
The entire work is expected to be completed on March
joined ICFOSS and they are engaged in different
2021.
research projects.
8. International Centre for Free and Open Source • Completed integration and functional testing of
Software (ICFOSS). Government of Kerala established already implemented functionalities and completed
ICFOSS as an international centre in collaboration with installation and setting up iDempiere.
Free Software Organisations in India and abroad to • Developed a first-level prototype having the features
promote development and application of free software for creating, modifying, transferring and closing an
and free knowledge. It is a nodal agency in all matters office file.
relating to free and open source software including • Conducted training on “LoRaWAN and RISCV for
consultancy, research and development, academics, IoT” at CET and Summer School on IoT.
studies and service, training, publishing, certification, • Conducted workshop on “LoRa in a Box” at Science
international co-operation and collaboration. ICFOSS Hack Day 2019, organised 2-day bootcamp on
has carried out many FOSS-based training programmes, “creating a RISC-V Microcontroller using Chisel,”
workshops, seminars, research programmes, projects, conducted workshop on “RISC-V CPU Design
malayalam computing activities, student internships using Chisel” at TrEst Research Park.
and projects, summer camps, faculty development • Conducted one day workshop on product
programmes, and fellowship programmes. development using Free CAD at different colleges at
The major activities of ICFOSS are the following: 12 districts.
• 20 faculty development programmes for teachers in 9. Kerala Startup Mission (KSUM). Kerala Startup
which 600 teachers participated, 25 student training Mission (KSUM) is the nodal agency of Government
programmes in which 750 students participated, 6 of Kerala for implementing the entrepreneurship
training programmes for professionals and SMEs in development and incubation activities in the
which 200 persons participated, 10 sci-lab training State. Kerala Start up Mission, formerly known as
programmes in which 300 students and teachers “Technopark Technology Business Incubator” is India’s
participated, student project works, internships, and first successful non-academic business incubator. It
fellowship programmes were conducted. started operations in 2007.
118 | KERALA DEVELOPMENT REPORT 2021

The objective of the Mission is to identify and develop 5477 active startups. Kerala is ninth with 1292 active
entrepreneurial talents among youth and students in startups.
Kerala, address the technology based entrepreneurship In January 2019, KSUM launched the Integrated
development requirements in the traditional sectors Start up Complex in Kochi, a sprawling complex, spread
of Kerala, build appropriate training programmes over 1.80 lakh square feet with dedicated facilities for
suitable for Kerala’s socio-economic culture, identify various sectors. It also hosts
niche market for technology products and services, i) Maker Village – India’s largest electronic hardware
interfacing and networking among academic, research incubator and Electronics System Design and
and development institutions, industries and financial Manufacturing (ESDM) facility.
institutions, establishing a platform for speedy ii)Bionest – State of the art biotechnology
commercialisation of the technologies developed in the instrumentation platform to promote and develop
institutes to reach the end-users. new entrepreneurs.
Under the banner of KSUM and several of its sector- iii) BRING – India’s first international accelerator for
specific partner organisations, there are presently 2900 hardware startups.
registered start-ups, more than 4 lakh square feet of iv) BRIC – an incubator dedicated to developing
incubation space, 40 incubators, 280 mini-incubators, solutions for cancer diagnosis and care.
more than 230 Innovation and Entrepreneurship v) Centre of Excellence established by UNITY and CERA.
Development Cells (IEDC), all of which are evenly KSUM has collaborations with Government, PSUs
distributed across various districts and cities such as and corporates to enable and empower startups and
Kochi, Thiruvananthapuram, and Kozhikode. Many youth with opportunities in the tech industry and the
of these facilities also house advanced labs that focus digital economy.
on sectors such as hardware, biotechnology, electronics The major events organised by the KSUM are:
and advanced computing. 1. Huddle India is the focal point for startups and tech
Since 2016, 2900 startups have emerged providing talent as well as top-tier investors, executives and media.
employment to 20,400 persons. Out of 2900 startups, The conference features stage programmes, side-events
13 per cent were registered in the first three quarters of such as networking sessions, roundtable discussions
2019 alone. and facilitated workshops to help startups connect
The number of startups in Kerala has increased even with the right investors and corporates. The philosophy
during the Covid-19 period. This is because of increase behind Huddle India is to help the next-generation
in return emigrants, the interest of youth in ventures world-conquering startups come forward and succeed.
and the quality of Government facilities offered for Huddle primarily focuses on emerging sectors such as
startups. In 2020, 399 startups have been registered in blockchain, cryptocurrency, IoT, gaming and esports,
Kerala, showing a growth of 18 per cent over the last cybersecurity, digital entertainment, AR/VR, AI, UI/
year. Currently among startups, Maharashtra tops with UX and e-governance.
Table 6.7 Key projects of KSUM
Sl. Project Name Status
no.
1 Building integrated startup complex (1.8 lakh Inaugurated in 2019. Around 200 companies are
square feet) in Kochi working.
2 Construction of two buildings under KIIFB in Buildings are expected to be completed by
Kochi September 2021 and February 2022.
3 Construction of 50,000 square feet in CDAC Inaugurated on November 2, 2020. 20 startup
Building at Technopark for ACE accelerator companies onboarded.
4 Super fab lab at Kochi Machine installation complete.
5 Support to other incubators KSUM supports four other incubators – Maker
Village, Bionest, Mobile10X and BRINC.
6 Investment in fund of funds Investment in select fund of funds for investing
in startups.
7 Regular activities Continuing on online mode now.
 INFORMATION TECHNOLOGY | 119

2. Seeding Kerala, a two-day investor-focussed event. • 316 startups built through Innovation and
3. Meetup Café is the place for startups, industries, Entrepreneurship Development Centres (IEDC)
institutions and investors to come together, share their • More than 40 incubators and 4 accelerators in the State.
knowledge and develop a community whose focus is • 13 per cent women startups in Kerala, 30 women
the overall development of the ecosystem. The café is startups registered with KSUM.
developed as a mentorship and investment centre for • Conducted IEDC Summit 2019. Over 4000
startups across the State , as well as a one-stop centre students from 226 academic IEDCs across 14
for all technology awareness. Meetup Cafe is hosted districts of Kerala had attended the summit.
every month in the three cities of Kerala namely • Organised 5th edition of Seeding Kerala 2020 in
Thiruvananthapuram, Kochi and Kozhikode. Kochi. The Summit was attended by a select cohort
4. Investor café is an opportunity for startups looking of 150 investors and high net worth individual
for funds to connect with investors and get funded. and is the flagship event for the Angel Investor
5. Women Entrepreneurship Startup Programmes. Community in the State
6. Whyhack. An exclusive woman-only hackathon • Conducted Huddle Kerala 2019. Kerala Startup
in partnership with TCS and ICFOSS. TCS offered Mission (KSUM) has signed Memorandum
internship opportunity to the winners of the Hackathon. of Understanding with Oppo, Future Group,
7. She Loves Tech National Challenge. KSUM has Wadhwani Foundation, and Orbit.
partnered with Singapore based SHELOVES TECH, • Conducted Women Startup Summit 2019, an event
a platform to promote women entrepreneurs across with an aim to promote women entrepreneurship.
the globe. KSUM organised national competition • Conducted K-WINS workshop, a programme that
for women founders. More than 90 women founders aims to enable qualified women who are on a career
participated in this competition and winner took part break (or not under full-time employment) to take
in global competition. up flexible freelance assignments. 55 women who
8. Women Startup Summit. KSUM organised the took a career break participated in this programme.
second edition of Women Startup Summit with the • Establishment of Technology Innovation Zone at
support of TiE Kerala and IWN Kerala Chapter. The Kalamassery, Kochi is in progress.
• Organised InQ Innovation hackathon. As many as
objective of the summit was to celebrate the success of
18 teams took part in the InQ Innovation hackathon
women entrepreneurs and promote technology-based
organised jointly by Incubate IND and KSUM.
entrepreneurship among women. A five-day virtual
• Organised Entrepreneurship Development
entrepreneurship programme was organised for aspiring
programme with the proactive support of C-DAC.
and budding women entrepreneurs with the support of
• Seven startups under KSUM took part in the
people foundation.
Innovfest Unbound in Singapore.
The many achievements of Kerala Startup Mission are:
• Conducted IGNITE Angel Investment master class,
• Kerala ranked as the top performing State in
an education programme to create awareness about
DPIIT’s State startup ranking in 2019.
angel investing in startups and 27 startups attended
• Home to one of India’s largest innovation hub of 1.8
the programme.
lakh square feet – the Integrated Startup Complex. 10. Centre for Development of Imaging Technology
• Established centres of excellence in AR/VR with (C-DIT). C-DIT has been functioning as an Information
global tech giant Unity. and Communication Technologies (ICT) solutions
• Established the BRINC Hardware Accelerator and provider in the Government sector.
XR Accelerator in collaboration with Unity. The major programmes undertaken by C-DIT are:
• Incubation infrastructure for niche sectors such as • Reorganisation of Chief Minister’s Public Grievance
cancer research, spacetech, and biotech. Redressal system and Distress Relief Fund assistance
• Established Space Technology Application mechanism into an integrated online portal www.
Development Ecosystem (STADE). cmo.kerala.gov.in.
• Establishing Super Fab Lab at Kochi. • Online Blood Disorder Registry, Ashadhara for the
• Conducted 32 fab workshops imparting digital National Health Mission.
fabrication expertise to more than 250 participants. • Integrated Co-operative Department Management
• 47 funded startups in the State and13 among these System for the Registrar of Co-operative Societies/
were funded in 2019. Department of Co-operation.
120 | KERALA DEVELOPMENT REPORT 2021

• Portal for the management of Thozlilai Sreshta Award project for Public Works Department, e-suraksha
for the Labour Commissionerate. software for Social Security Mission.
• Suggestion System for the Office of the Registrar of • Facilitated Nammal Namukkai under Rebuild Kerala
Co-operative Societies. Initiative and Transgender Advocacy Campaign.
• Design and development of software for conducting • Creative support for the Break the Chain Campaign
online examination and on screen evaluation of to prevent the spread of Covid-19 pandemic.
written answer sheets for Kerala Public Service • Creative support and technical facilitation of Break
Commission and question bank for the Kerala Public the Chain Campaign for Kerala Social Security
Service Commission. Mission, “Koode” the portal for the Covid-19
• Digitisation of old manuscripts and documents for affected patients, technical support for the creation
State Archives and Registration departments. of lessons for preschool learning titled “Kilikonchal,”
• Online admission portal for ITIs for the Scheduled tutorial video for the Samoohika Sannadha Sena were
Caste Development Department. the other projects of C-DIT in 2020-2021.
• Revised version of the E-group 2.0 for the Registration
11. Institute of Information Technology-Kerala, Pala
Department.
(IIIT-K, Pala). Government of Kerala started IIIT-K in
• Upgradation of fair value application for the
2015-16 at Pala, Kottayam under PPP mode to lead,
Registration Department.
organise and conduct research and innovation in IT
• Admission and Recruitment Management System for
and allied fields of knowledge. This is a joint initiative
the SIMET.
between Government of India, Government of Kerala
• Onsite technical support for Research Fellowship
and Industrial Partners with 50 per cent, 35 per cent,
Online Examination for KSCSTE.
and 15 per cent share participation. The approved
• Design, hosting and maintenance of over 200
project cost is Rs 128 crore excluding land.
Government websites and social media platforms
MIS/ERP systems for various Government Way Forward
departments. To stay competitive as an IT destination, the IT sector in
• Carried out hologram embedded tax label production Kerala must significantly enhance the value addition it
for Kerala State Beverages Corporation for affixing brings to the State economy. It must attract investment
in Indian made foreign liquor bottles. Besides, in emerging areas in the IT sector and not rely solely on
hologram embedded security documents such as RC established IT/ITES activities. As the Indian IT sector
Book, driving license were also supplied to Motor as a whole grapples with issues of the changing focus
Vehicles Department. and emerging issues within the global IT sector, Kerala
• Successfully carried out Facility Management must also keep pace with these changes. At the same
System for all the RT offices under MVD Vehicles time, the considerable advances that have been made
Department. in the digital empowerment of the population and the
• Providing infrastructure facility for training to spread of IT awareness and use must continue to be
Government employees in handling SPARK software. built upon and developed with further investment in
• Conduct of Advanced Training programme for appropriate infrastructure. These would continue to
students belonging to Scheduled Caste. serve the State’s needs over a period of time and prevent
• Completed digitisation of documents in sub-registrar obsolescence.
offices in six districts, digitisation of old registration Education-enabled ICT, research and development
cards in employment directorate, and digitisation of and innovations need to be identified and promoted
palm leaves and archaeological documents in Sree to strengthen the State’s economy. It is expected that
Padmanabhaswami Temple. the thrust placed by the Government in infrastructure
• Completed online examination software for development, human resource development and overall
Entrance Examination Commissionerate, fair value economic development would open up more and more
application software for Registration Department, opportunities for the meaningful use of Information
online payment gateway system for Registration Technology. Our leap forward in IT related areas is
Department and Kerala State Chalachithra Academy, dependent on attracting substantial investment in
Recruitment Management System for SIMET, this sector and identifying and promoting young
e-monit system for Irrigation Department, WINGS entrepreneurs through startups.
 Chapter 7
Leveraging Science and Technology for Development
In this chapter we examine the current scenario with if they are of very high quality and the best of them
respect to science and technology in Kerala and the truly world-class. In contrast, research in the higher
future development of this sector as part of the larger education sector is overall fairly limited and questions
effort at Kerala’s development. This is particularly may be raised as to its quality. In a larger sense, the
relevant in the circumstances in which Kerala finds decline in public investment in higher education has
itself today in facing the challenge of sustainable also further exacerbated the contrast between the best
development. Indeed, as we near the end of the 13th of India’s basic science and the relatively low-level of
Five-Year Plan, the significance of the science and the major part of science teaching and research in the
technology sector is perhaps even more evident and higher education sector.
relevant than it was initially. Kerala, however, presents a somewhat different
Introduction and Overview picture. In contrast to most of the country, the State can
It is a truism that science and technology are critical justifiably boast of a school education sector that is not
to development. However, as with all truisms about only comprehensive and universal in its coverage, but
development, achieving it in practice does not follow also set on a path of ever-increasing quality. Even more
in any automatic way. At the national-level, the pertinently, Kerala’s civil society is highly invested in
recognition of the importance of science and technology science popularisation and the promotion of a scientific
as part of the development effort came early on, on the temper, on a scale that has no parallel in the country.
occasion of national independence itself, backed by a But despite these two striking features, Kerala per se has
near universal political and social consensus. This has only a limited footprint in the science and technology
stood the country in good stead and provided it with sector in the country. Some part of this is undoubtedly
the basic scientific and technological infrastructure due to the limited Central investment in science and
that, by the 1970s, had placed India among the leading technology institutions in the State, with many of
nations in science and technology in the developing them focused on application-oriented research rather
world, and provided some hope of a bright future than in fundamental science. This has begun to change
with a competitive scientific infrastructure by even somewhat in more recent times. One must not forget
developed country standards. Unfortunately, it may be though that there is a Kerala diaspora, a substantial
argued that these hopes and aspirations for India still section of it trained at least up to undergraduate-level
remains substantially in the future rather than having in Kerala that is increasingly successful in competitive
been realised in practical terms. entry into scientific institutions in the country and
The reasons for this gap between hopes and their outside.
realisation are not difficult to track down. It may be While no individual State Government can match
argued that Indian science and technology increasingly the scale of Central investment that is essential to
presents the picture of an inverted pyramid with a drive regional science and technology development,
substantially advanced infrastructure that rests on a Kerala has one of the more active and well-organised
fairly weak base. While the public sector institutions State-level departments of science and technology. It
constitute a major part of the nation’s science and has a well-established network of institutions devoted
technology assets, the private sector has not developed to some scientific issues that are relevant to Kerala’s
such institutions or a corresponding science and ecological setting, a good connect with the higher
technology infrastructure, except in a very few select education sector and definite areas of expertise, though
areas. These include pharmaceuticals (India’s vaccine in a limited range. While these are laudable they are
production capacities have been noted world-wide in still distant from the kind of integration of science and
the Covid-19 pandemic), some chemicals, and to a technology that is necessary for leveraging development
certain extent electronics and software. Overall, India’s in the future.
footprint in global patenting is very limited. One area of success in this regard though is the role
If technology research remains limited in scope that Kerala’s research and development institutions
and scale in the country, basic scientific research played recently in assisting the State in dealing with
remains restricted in practice to a few institutions, even the natural disasters of two consecutive years in 2017
122 | KERALA DEVELOPMENT REPORT 2021

and 2018. The study led by the KCSTE on the flood State resources where it can have the maximum impact
and landslides in the State, their causes and potential without duplication is essential.
mitigation, is a landmark that demonstrated the kind In the following sections, the developments in the
of specific contribution that these institutions could science and technology sector in the 13th Five-Year
make to the sustainable development of the State. Plan are sketched in some detail, though some of the
We list below a few issues that, inter alia, need to lessons have already been noted above. Two notable
be examined in the context of leveraging science and successes have been the consolidation of the work of
technology for development. the Kerala School of Mathematics and its launching a
The first is the role of technology research and its new phase of growth and the other the establishment
relation to actual production. Two areas relevant in this of the Institute of Advanced Virology, which is clearly
respect are information and biotechnology. Neither a timely and noteworthy investment especially in the
of the two sectors can boast of an adequate linkage context of the issues raised by the Covid-19 pandemic.
between research and production. Science and Technology in the 13th Five-Year Plan
Promoting linkages between knowledge generation The projects for the 13th Five-Year Plan were planned
and actual production requires active partnership for the promotion, support and popularisation of
between industry and academia, especially in scientific science and technology and for the implementation
and technical education, with the increasingly active of focused research programmes for the overall growth
engagement of industry professionals in specialised and development of the Kerala. It was proposed to
teaching. It is also essential to promote a broader culture encourage high quality research to take the State to a
of innovation throughout the higher education system. higher-level in research. Introduction of schemes on
A valuable beginning can be made with promoting a nanotechnology and biotechnology for addressing
mandatory course on innovation for all undergraduates various State-related issues like pollution, waste
and the encouragement of innovation as the focus of all management, and better life care were also envisaged
final year project work that is now ubiquitous in higher for the plan period. The approach towards the science
education. and technology development in the current plan was
A second issue that has been much discussed is of
focused on the real developmental needs of Kerala.
quality. While it should not be exaggerated, the need
The approach of funding to individual projects in the
is really to ensure institutional mechanisms for quality
random order, of course, on some general major theme,
rather than mere exhortations.
was to be replaced by funding to integrated collaborative
A third serious concern is the need to maintain
and multidisciplinary science and technology research
adequate and strong linkages with leading institutions
by bringing all the research and development centres
outside Kerala. Currently institutions do maintain
to specific goals. The overall focus was on science,
some links, but these are often dependent on individual
technology and innovation for sustainable development
contacts and are limited in number. Institutional-level
and inclusive growth in the socio-cultural economic
linkages are at another level and developing these is a
context of the State .
challenge. One outcome of such linkages is to bring
scientists and researchers from outside the State into Key Features of Approach to 13th Plan
the Kerala Science and Technology system. Elsewhere • Science and technology investment at the State-level
in the country it cannot be missed that institutions with must improve the capacity of the State Government
a cosmopolitan culture, drawing talent from across the to attract investment, develop local resources and
country, are among the most successful. Locations that facilitate innovations.
were in the lead in science earlier but had not developed • State efforts should complement rather than substitute
such a culture have indeed fallen behind. Central support for the science and technology sector.
It must be recognised of course that much of the • It is essential to ensure an adequate system of peer
above cannot be driven solely by State-level finance, as review, project evaluation and timely delivery for
these are meagre for the task at hand and will remain research projects, research grants and fellowships
so for some time to come. Hence attracting Central granted by Kerala State Council for Science,
investment, or external higher education investment Technology and Environment (KSCSTE).
that is in tune with the State’s needs, are important • Promoting coordination and collaboration between
avenues for growth of science and technology in research institutions and higher education system.
Kerala. At the same time, prudent deployment of • Support to improve participation of women, people
 SCIENCE AND TECHNOLOGY | 123

of the Scheduled Castes and Scheduled Tribes in Technology (NIIST), Central Tuber Crops Research
science and technology for a diverse and inclusive Institute (CTCRI), universities and the research and
human resource base for science and technology. development institutions of KSCSTE.
Vision • Preparation of database of Women in Science in
The 13th Plan envisaged implementing programmes Kerala: Programme to analyse the representation of
to achieve excellence in science and technology within women in various sectors of science and technology
the State and to provide service to the society at large. to address the concerns on under representation in
The overall plan focuses on science, technology, and any of the science and technology sectors. Online
baseline data on women in science will be collected
innovation for sustainable development and inclusive
through an online directory and analysed to arrive
growth in the socio-cultural and economic context of
at the present status of women in various sectors
the State .
of science profession which will help to address the
Mission concerns on their under representation in any of the
Delivery of science and technology led solutions for sectors.
improving the quality of life of the people and the • New programme to support the research and
environment being the thrust, the plan is framed in development on assistive technology.
conformity to this vision. • Institute of Virology, Kerala, for strengthening
Public investment in science and technology sector epidemic preparedness, rapid response and risk
in Kerala has been focusing on generating new income communication to the public apart from the high end
and employment opportunities in the State. The two research in the area of basic as well as translational
major institutions in the Science and Technology sector virology. It is proposed to have the biosafety measures
in the State are the Kerala State Council for Science, in the institute to handle high risk viruses.
Technology and Environment (KSCSTE) and the • Research and development activities in areas of green
Regional Cancer Centre (RCC), Thiruvananthapuram. energy harvesting, natural resource development
Kerala State Council for Science, Technology, and management, recirculation aquaculture, waste
and Environment (KSCSTE) management and technology options for livelihood
The main objective of KSCSTE is to plan and formulate support.
science, technology and innovation policy pertaining • Green technology initiatives for making all activities
to the development of the State. The council promotes of KSCSTE environmentally sustainable.
and activates programmes for increasing the stock of Physical achievements upto 2019
knowledge in science, and fine tunes policies which The plan allocation to KSCSTE under science and
are significant and for the sustained development of technology component is made under the following
humanity. It also drives the research and development schemes:
efforts of the research and development centres and offers i. Research and development institutions under
assistance for the creation of physical infrastructure and KSCSTE
procurement of scientific infrastructure through the ii. Infrastructure Strengthening of KSCSTE
development and selective augmentation of research iii. Schemes and programmes of KSCSTE
and development activities. The other initiatives iv. Grant-in-aid support to science and technology
include, institutions
• Science popularisation programmes v. Biotechnology Development Programme
• Research development programmes vi. Special programmes of KSCSTE
• Ecology and environment related programmes vii. Karamana River Scientific Management Project
• Awards and recognition for science promotion During the current Five-Year Plan period, the
• Technology development and transfer following new schemes were initiated:
• School-level promotional activities i. Institute of Advanced Virology (IAV)
ii. Institute of Diabetic Research
New initiatives suggested in the 13th Plan
• Green Technology initiatives: Programmes on Highlights of major achievements
green technology are proposed to be undertaken • Establishment of Institute of Advanced Virology.
through inter-institutional collaborations with CSIR The Institute of Advanced Virology (IAV) is a
National Institute for Interdisciplinary Science and significant milestone in Kerala’s efforts to embrace
124 | KERALA DEVELOPMENT REPORT 2021

Table 7.1 Outlay and expenditure of science and • Flood mapping, and biodiversity documentation
technology sector, in Rs crore after the floods.
Year Outlay Expenditure • Malabar Botanical Garden initiated establishment of
2016-17 159.15 86.01 (54.08%) a Science centre at Kozhikkode.
2017-18 175.07 82.00 (46.84%) • Initiated academic attachment programme for those
undergoing studies in plant science in the colleges of
2018-19 194.08 90.59 (47%)
Kerala.
2019-20 225.18 65.36 (29%)
• Improvement of Lab facilities in more than 20
Source: Plan Space Kerala
educational institutions under Sasthraposhini
world class science research and development. scheme.
It was established in 2019 in the Bio 360 Life • Women empowerment programmes were undertaken
Sciences Park, Thonnakkal, Thiruvananthapuram for supporting women who had undergone a career
by the Government of Kerala is envisioned as an break and for attracting women and girl students to
institute of global standards networking Global science stream.
Virology Institutes with most modern laboratories i. About 15 research fellowships were awarded under
focusing research, diagnosis and management of Back to Lab Research Fellowship programme.
emerging and re-emerging infectious viral diseases. ii. Awareness Programme on “Technological advances
Its vision is to harness the best and eliminate the in transforming women's lives.” 600 to 700 women
worst of viruses for a better human life and to participants had benefited from the programme on
work as a centre of excellence in collaboration with technological advances in sectors such as energy
international institutions for training and education management in household, food and nutrition, soil
in the context of research covering basic science and and water conservation, and organic farming.
translational research, providing sufficient scientific iii. Preparation of database of Women in Science
inputs to enable the prevention and control of viral in Kerala – an important initiative suggested to be
infections. Its mission is to develop state-of-the- taken up during the 13th Plan. 2,918 registrations
art infrastructure, skilled scientific and technical were made in the online directory which is developed
personnel, and services and products in virology to for obtaining base-line data on the status of women
serve local, national and global needs. The institute in various sectors of Science in the State.
has been virtually inaugurated in October 2020. • Extended financial support to 145 new research
• Scaling up of activities Kerala School of Mathematics projects.
(KSoM) through initiation of an integrated MSc/ • Published about 180 science journals, more than
PhD programme and strengthening of postdoctoral 1500 science research articles and 40 books.
scholars’ recruitment. • Prepared GIS-based information system for inland
• Established Analytical Instrumentation Centre at water ways in Kerala
Kerala Forest Research Institute which will benefit • Trainings imparted through various programmes and
the research students from central and north Kerala. more than 1500 persons were trained through these
• A total number of 689 research fellowships were programmes.
awarded under various schemes/programmes of • Developed green technology for organic compost
KSCSTE. production.
• Kerala hosted the National Children’s Science • Infrastructure development in all the research and
Congress for the first time in the history of the State. development institutions under KSCSTE.
• Organised Rural Investment Meet, TECHFEST,
Science Congress, etc. Research and development centres under KSCSTE
• Young scientist awards were given to 22 scientists. There are seven research and development centres under
• Upgradation of science labs in schools, especially the Council which conducts research and development
after the flood in the State. 62 science post-graduate activities in specific mandated domains.
labs and labs in 179 government and aided schools in Major initiatives/achievements of the centres are
the State were augmented under SARD scheme. detailed below:
• Launched new online portal for receiving application 1. Kerala Forest Research Institute
for Prathibha scholarship and a total number of 357 • The Bamboo Primary Processing Centre (BPPC)
scholarships were awarded. was set up under the Bamboo Technical Support
 SCIENCE AND TECHNOLOGY | 125

Table 7.2 Overall performance of research and • Devised a system for emergency vehicle priority for
development centres the operation of ambulances.
Details Number • Prepared reports on investigation of major accident
spots, causative analysis and mitigation measures.
PhDs 42
• Prepared GIS-based information system for water
Persons trained (Research) 1255 ways in Kerala.
Persons trained (Technical) 986 • Prepared database pertaining to road accidents,
Patents filed 5 pavement management system, traveller/tourist
Technology transferred 3 information system for Kerala in GIS pattern.
Research papers 59 • Completed study on failure of roads in Kuttanad
region.
Trainings 37
3. Centre for Water Resources Development and
Publications in refereed journals 60 Management
Book/chapters 11 • CWRDM has prepared Water Security Plan for 13
Group with the support of the National Bamboo gram panchayats for Jalanidhi Project-Phase II in
Mission (NMB). Malappuram, Kozhikode, and Kasaragod Districts.
• A database of forestry literature developed under • Prepared Hydrological Information System for the
the project titled “An Information System for river basins in Kerala.
Forest of Kerala.” This database consists of 6200 • Water quality testing and issuance of water card
records which include scanned books, reports, and is being done routinely based on request from
journal articles, working plans, management plans panchayats/municipalities/corporations/other
and thesis. Scanned materials are processed and public bodies.
metadata is provided for each record. • Assessed water, sanitation, and hygiene (WASH)
• Bibliographic citations of 9600 articles related to facilities in Attappady block under UNICEF
Indian Forestry were covered. Project.
• Developed a digital library for the Teak Museum. • Coordinated the preparation of District Irrigation
• Conducted district-level survey for studying factors Plans for Palakkad and Idukki Districts under
affecting roosting ecology of birds in Kerala. Pradhan Mantri Krishi Sinchai Yojana (PMKSY).
• The Central Instrumentation Unit of KFRI • Developed irrigation schedule for coconut and
generated an income of Rs 2.7 lakh. pepper for different agro-ecological zones.
2. National Transportation Planning and Research • Prepared preliminary investigation report for
Centre (NATPAC) Mitigation Measures for Flood Abatement in
• Prepared GIS-based road and traffic database for upper Kuttanad.
the roads in the State. • Completed study on analysis of climatic parameters
• Air Pollution Index of the State was developed. in Kozhikode.
• Developed a traffic growth rate model for national • Identified community based water supply schemes
highways in the State. in different local bodies with the objective of
• Conducted study on the impact of duration of evaluation of impact of such schemes in the State.
flooding on different layers of flexible pavements • Developed regional flood frequency model using
of flood prone roads in Kerala. L moments with the purpose of regionalising
• Prepared regional transportation development plan the river basins of the State and developing flood
for various districts in the State. frequency relations for each region.
• Conducted study on the effect of vehicle type in 4. Jawaharlal Nehru Tropical Botanic Garden and
the saturation flow at signalised intersections. Research Institute
• About 13 road safety projects/programmes • Ethnomedical survey and systematic
pertaining to schools, panchayats, drivers and documentation of Traditional Knowledge among
other road users were competed reaching a target 13 tribal communities in 17 gram panchayats of 3
more than 3000 road users. districts of Kerala were completed.
• Carried out 28 research projects and 34 externally • Ethnobotanical survey in the coastal areas of
funded projects. three southern districts of Kerala has been
126 | KERALA DEVELOPMENT REPORT 2021

completed, based on which 3069 information were PhD programme. It is also expanding its post-doctoral
documented including food plants (422), medicine research programme. KSoM conducted a very successful
(2117), fodder (132), fishing tools and implements international mathematics conference that was widely
(281), fuel (117), etc. attended and attracted large viewership.
• An integrated research and development centre 6. Srinivasa Ramanujan Institute for Basic Sciences
of JNTBGRI, for promoting green industry (SRIBS)
established at Kuzhoor Panchayat, Kodungallur, The institute has organised colloquia, seminars;
Thrissur District, with the financial support of workshops benefitting students, teachers and researchers
Kerala State Industrial Development Corporation in various areas of science. Academic programmes were
(KSIDC), Government of Kerala. conducted in which there were about 50 participants
• Competed Ethno botanical survey in the coastal across the State every year.
areas of selected panchayats in Thrissur for the 7. Malabar Botanical Garden and Institute of Plant
systematic documentation of ethno-medico Sciences (MBGIPS)
botanically important plant species used for food • The United Nations University-Institute for Advanced
and medicine by different tribal communities in Studies (UNU-IAS), the academic and research arm
the district. of the UN, recognised MBGIPS as the Regional
• Community Agro Biotech Resource Centre of Centre of Experts (RCE) in sustainable education.
JNTBGRI conducted training programme for • Number of publications-32
300 rural women on medicinal plant cultivation • Trainings conducted-10
and production of value added products from
locally available plant resources with the objective Schemes and programmes of KSCSTE
of disseminating appropriate technologies to rural The schemes and programmes of the Council are
population for economic upliftment and income aimed at the development of high quality science
generation. education system in the State. With a view to identify
5. Kerala School of Mathematics and implement programmes to achieve excellence
Kerala School of Mathematics (KSoM) imparted in science and technology within the State and to
training to Maths Olympiads and Maths talent provide service to the society at large, the Council
search, organised summer and refresher trainings is implementing various schemes and programmes,
and orientation programmes to college teachers and focusing on popularisation of science and promotion,
conducted national and international workshops and research and development, ecology and environment,
seminars. They conducted 29 training programmes technology development and transfer, biotechnology
and workshops. It has now initiated, with recognition development, school-level promotional activities, and
from the University of Calicut, an integrated Masters/ science programmes for women.
Table 7.3 Overall achievements of schemes and programmes
Scheme/ Projects PhDs Publications Trainings Patents
programmes sanctioned Books/ filed
Refereed Conference/
book
journals seminars
chapters
HR development in science and technology
Science research 133 10 558 - 487 166 18
scheme (SRS)
Emeritus scientist 17 23 546 9 70 - 3
scheme
Students projects 417 - - - - - -
Scheme for 581 - - - - - -
Promotion of Young
Talents in Science
(SPYTiS)
KSCSTE research - 55 197 - 64 - -
fellowship
 SCIENCE AND TECHNOLOGY | 127

Postdoctoral 38 - 25 3 66 - -
fellowship
22 best paper/poster awards were given in conferences under SRS
Infrastructure development in science and technology
Selective Augmentation of 62 science post graduate laboratories/research institutions and 179
Research and Development Government/aided schools in the State were augmented. Published 31
(SARD) papers.
Sastraposhini 17 Government schools and 4 model residential schools were selected
for establishing model science laboratories
Technology development and transfer
Engineering Technology Sanctioned projects-19, PhDs-19
Programme
Technology development and Sanctioned projects-11
adaptation programme
Rural technology programme Sanctioned projects-18
Patent information centre Patent applications processed-105
Support to women in science
Back to Lab research 25 14 48 1
fellowship programme
Awareness Programme on Sanctioned Projects-7
“Technological advances in 600 to 700 women participants had benefited from the programme
transforming women’s lives” on technological advances in sectors such as energy management in
household, food and nutrition, soil and water conservation, organic
farming, etc.
Project on Preparation of 2,918 registrations were made in the online directory which is developed
database of “Women in for obtaining base-line data on the status of women in various sectors
Science in Kerala.” of Science in the State.
STARS (Students with talent
and aptitude for research in
science)
Pratibha scholarship scheme Lunched new online portal for receiving application for the scholarship
No. of scholarships-357
SPEED (Student Programme for Excellence in Experimental Design). In 2018-19, a five-day residential
science camp for Prathibha scholars was organised at Indian Institute of Science Education and Research
(IISER) under SPEED (Student Programme for Excellence in Experimental Design)
Kerala Young Scientists Awards were given to three scientists in 2018-19

Box 7.1
Institute of Advanced Virology
The Institute of Advanced Virology is a significant milestone in Kerala’s efforts to embrace world-class
science research and development. It was established in 2019 in the Bio 360 Life Sciences Park, Thonnakkal,
Thiruvananthapuram by the Government of Kerala. It is envisioned as an institute of global standards
networking global virology institutes with most modern laboratories focusing research, diagnosis, and
management of emerging and re-emerging infectious viral diseases. Its vision is to harness the best and
eliminate the worst of viruses for a better human life and to work as a centre of excellence in collaboration
with international institutions for training and education in the context of research covering basic science
and translational research, providing sufficient scientific inputs to enable the prevention and control of viral
128 | KERALA DEVELOPMENT REPORT 2021

infections. Its mission is to develop state-of-the-art infrastructure, skilled scientific and technical personnel,
and services and products in virology to serve local, national and global needs. The institute with a total
project cost of Rs 202 crore is aimed to work for industrial transfer/facilitation of technology and Kerala State
Industrial Development Corporation will be a partner to provide land and infrastructure. The construction
of campus at Thonnakkal, Thiruvananthapuram, spread over 25 acres of land is in two phases, Phase I and
Phase II consisting of Phase 1A Prefab building (25,000 square feet) of 2 floors housing Administrative
block, biolabs, common instrumentation room, biosafety-level facilities, and diagnostic facilities and Phase
IB main building (78,000 square feet) of 3 floors with administrative block, biolabs, biosafety-level facilities
and functional division. The institute was virtually inaugurated in October 2020 and is affiliated to the
Global Virus Network, which has 45 centres of excellence in over 29 countries. The clinical virology and
viral diagnostic divisions became operational in the pre-fab building.

Regional Cancer Centre and medical wards, pay wards and hostels costing Rs
Globally, about 1 in 6 deaths is to cancer. 187.22 crore with the target of improved space for
Approximately 70 per cent of the deaths from cancer patient care facilities.
occur in low and middle income countries. Regional • Creation of infrastructure facilities and procurement
Cancer Centre (RCC), Thiruvananthapuram, is an of machinery and equipment in the new building.
autonomous scientific institution sponsored jointly by • Implementation of the centrally sponsored scheme
the Government of Kerala and Government of India. upgradation of RCC as State Cancer Institute:
The centre was established in the year 1980 as a tertiary Under the National Programme for Prevention and
referral centre for the diagnosis and treatment of cancer. Control of Cancer, Diabetes, Cardiovascular diseases
RCC ranks in the top three among the 28 Regional and Stroke (NPCDCS), the Central Government
Cancer Centres in India. It is the only comprehensive, has approved a project costing Rs 120 crore for
dedicated centre for diagnosis, treatment, and control upgradation of RCC as State Cancer Institute on cost
of cancer in Kerala. On an average 60,000 new patients sharing mode of 60:40 between Government of India
occur every year in the State and out of this nearly and Government of Kerala. The expected outcome
one third comes to RCC for treatment. The Centre of the scheme includes capacity building at various-
undertakes basic, translational and clinical research and levels of health care for prevention, early diagnosis,
disseminates the knowledge. treatment and operational research, ensuring
support for diagnosis and cost effective treatment at
13th Plan primary, secondary and tertiary-levels of healthcare
Vision. The vision of RCC in the 13th Plan is to emerge and support for development of database of non-
as a global leader in cancer control. communicable diseases (NCDs) through a robust
Mission. Surveillance System and to monitor NCD morbidity,
• Deliver highest quality cancer care at affordable cost. mortality, and risk factors.
• Create cancer awareness among public and health Table 7.4 Profile of RCC at a glance, 2016-17 to 2019-20
professionals.
New cases registered 63,799
• Generate trained manpower in cancer control.
Review cases registered 10,09,345
• Organise outreach programmes in cancer control.
• Conduct focused cancer research relevant to society. In-patient admissions 46,077
• Lead cancer control activities in the State Radiotherapy 27,782
Brachytherapy 2166
Targets and strategies for the 13th Plan
Surgical procedures 24,641
• Construction of a 14 storey building: New block
Endoscopic procedures 9976
with state of the art facilities building in 14 floors
with 2.75 lakh square feet built up area hosting Chemotherapy administered 46,240
radiotherapy block, new Blood Bank, 10-bed bone Bone marrow transplantations 147
marrow transplant unit, modular operation theatres, Cancer detection programmes 1432
8-bed nuclear medicine ward, robotic surgery unit, Cancer education programmes 790
advanced microbiology laboratory, ICUs, surgical Ongoing research projects 695
 SCIENCE AND TECHNOLOGY | 129

• Augmentation of facilities for early detection of received support through the scheme.
cancers. Human resources development
• Upgradation of training and research facilities for 1. International School of Colposcopy. 65 doctors
maintaining high standards in training and research. were given one-week hands on training and 101
Central and State Government schemes BSc (MLT) students and 21 nurses were given one
• Both Central and State Governments have initiated day orientation programme on low cost Cervical
various schemes to ensure free or subsidised treatment Screening Strategies such as pap smear VIA, VILI,
for cancer patients. and colposcopy.
Major initiatives of RCC 2. Trainer-trainee programmes: A total number of
In addition to the Government-supported schemes, 10,816 people were trained in 2018-19 through
RCC provides support to patients and families through trainer-trainee programmes conducted for
various other schemes as detailed below: healthcare providers which included doctors,
1. Free Drug Bank: The Free Drug Bank functions post graduate medical students and paramedical
according to specific guidelines and is monitored staff from Governmental and non-Governmental
by a committee constituted by the Director, RCC. institutions, Community Volunteers such as NSS
The drug bank provided full or partial help to 999 and ASHA workers, NCC cadets, jail warders, etc.
patients up to 2019. Out of the total people trained, more than 50 per
2. Free food (Akshayapathram): Free food was provided cent were community volunteers.
to 20,423 patients belonging to vulnerable socio- 3. House Surgeon’s Training programme: A total
economic groups with the support of many number of 104 house surgeons participated in
philanthropic organisations. the training programme for house surgeons of
3. Support for Pediatric patients: “Prathyasa,” a Government Medical College and Government
voluntary group working in collaboration with Dental College, Thiruvananthapuram, on cancer
pediatric oncology division gives financial and prevention and control.
psychosocial support to children and their families. Cancer control activities
4. Indian Cancer Society Support Scheme: RCC was 1. Early cancer detection. A total number of 9807
selected as one of the five cancer centres across India persons attended the early cancer detection clinic of
for receiving financial support from the Indian RCC. As a result, 1321 cancers and 2145 pre-cancers
Cancer Society for treatment of cancer. 476 patients were detected.
Table 7.5 Central and State Government schemes, 2016-17 to 2019-20
Scheme Patients enrolled Total no. of people Amount spent
(new Cases) benefited (in Rs crore)
Central Government Schemes
Prime Minister’s Relief Fund 992 4551 8.29
Health Minister’s Rashtriya Arogya Nidhi (RAN) 505 6161 2.81
Health Minister’s Discretionary Fund 9 68 0.0153
Indian Cancer Society 34 320 2.76
Health Minister’s Cancer Patient Fund 67 173 0.30
(HMCFP- CSR Scheme)
State Government Schemes
Cancer Suraksha Scheme 2055 20,639 23.38
Chis Plus 19,475 14,3,069 51.38
Karunya Benevolent Fund 15,509 91,043 107.12
Sukrutham 5030 31,449 36.53
Thalolam 43 390 0.09
Scheduled Tribe Patient Fund 110 1413 0.86
Snehasanthwanam for Endosulfan victims 22 195 0.08
130 | KERALA DEVELOPMENT REPORT 2021

2. Cancer outreach programmes. A total number of • Three anesthesia work stations and four ICU
213 cancer detection camps were conducted in various ventilators.
parts of the State in which 25,167 people underwent • Integrated bipolar and ultrasonic cutting and
screening. A total number of 14711 trainees were coagulation units.
sensitised in cancer control through 113 cancer • Digital radiography and fluroscopy system.
awareness programmes. • Supersonic USG machine with elastography.
Apart from these, 22 camps were conducted • Fourier transform infrared spectrometer.
as part of the bi-weekly cervical cancer detection • New casuality was inaugurated.
clinic for the women residing at Mangalapuram in • New facilities were added to various divisions such
Thiruvananthapuram and of the 140 women screened, 1 as radiodiagnosis, radiation physics, microbiology,
cervical cancer and 6 cervical pre cancers were detected. pathology, anesthesia, bone marrow transplantation
74 tobacco users attended the Clinic for Tobacco unit, transfusion medicine, surgical oncology, new
Cessation. Programmes on substance abuse threat in casuality, research and information system division.
Model Residential Schools in Kerala, cancer prevention
Covid-19 related activities
among vulnerable groups in tribal settlements, and
• Decentralisation of cancer care in all districts
cancer detection camps were arranged with the support
through RCC trained doctors in district and taluk
of Scheduled Tribes Department as part of the cancer
hospitals.
prevention and control activities in 6 panchayats in
tribal areas of Thiruvananthapuram. • Effective containment of Covid-19 infection in
3. Research and development activities. The RCC as RCC through formation of Covid monitoring
a pioneer research institution in cancer research has cell.
produced several PhDs in cancer research. Until 2019, • Distribution of cancer drugs worth Rs 47 lakh
around 85 scholars were pursuing PhD, 99 residents to patients at their homes through Kerala Fire
undertook specialisation in medical, pediatric and Services.
surgical oncology super specialty courses, and 141 RCC: Challenges ahead
residents undertook postgraduate courses in anaesthesia, 1. Completion of 14 storied building in RCC.
pathology, radio diagnosis, and radiotherapy in the 2. Create more space by expansion of physical
centre. The number of ongoing research projects is 480. infrastructure.
4. Infrastructure development in RCC.
3. Virtualisation of IT hardware infrastructure
i. Expansion of Physical infrastructure
The preliminary works of the construction of a state 4. Hyper converged IT infrastructure
of the art building of 14 floors with 2.75 lakh square 5. Tobacco related cancers in Kerala State are still high.
feet built-up area hosting radiotherapy block, new Scale up tobacco control measures to reduce the
blood bank, 10-bed bone marrow transplant unit, burden of tobacco related cancers in collaboration
modular operation theatres, 8-bed nuclear medicine with various departments in the State.
ward, robotic surgery unit, advanced microbiology 6. Training of doctors and nurses in State Health Services
laboratory, ICUs, surgical and medical wards, pay Department. The intention is based on the fact that
wards, and hostels costing Rs 18,722 lakh has been more than 60 per cent of common cancers occurring
started by RCC in a phased manner with the target of in the community are diagnosed in advanced stages. To
improved space for patient care facilities. counter this it is essential to give prime importance for
ii. Diagnostic and treatment facilities added during the early cancer detection for which doctors of primary and
period 2018-19. community health centres have a major role to play.
 Chapter 8
Tourism in Kerala
Tourism is regarded globally as a sector that has high and the strong presence of local entrepreneurs.
economic value, because it creates employment, Tourism has been a significant contributor to the
generates foreign exchange, spurs regional development State’s economy for the last three decades, bringing
and promotes traditional industries. International in earnings of Rs 45,019 crore in 2019 and providing
tourist arrivals across the world grew 4 per cent to employment to approximately 1.5 million people,
reach 1.5 billion in 2019. Tourism is the third largest directly and indirectly. The State Government has
export sector in the world, accounting for 7 per cent identified the sector as one of the most significant
of global trade. The tourism value chain extends across growth areas, one that can contribute substantially
several verticals and industries, involving lodging, to the State economy. Within its constraints, the
travel, transportation, food industry, retail trade, and State has invested in the tourism sector, developing
entertainment sectors. Because of its extensive backward basic amenities in tourism destinations, investing in
and forward linkages, tourism also plays a major part in creating tourism products and experiences, providing
local economic development. The sector is important information and facilitation centres, providing visitor
in developing economies because of its emphasis on facilities and building infrastructure for land and
small businesses and its potential for generating local water-based tourism activities. Although there has been
employment and livelihoods, particularly for youth and State investment in the creation of accommodation
women. facilities, there has been a decrease in investment
Tourism in India in such infrastructure over the years, in the light of
The growing influence of the tourism sector as an substantial private investment in building hotels and
economic powerhouse and its potential as an instrument resorts. Another major area of investment for the State
of development has been recognised at the national- has been marketing and promotion in national and
level. The Government of India has devised schemes international markets. The State machinery is involved
that aim to harness the direct and multiplier effects of in quality assurance and certification programmes,
tourism on employment and poverty eradication in defining service standards, and conducting approval
the country. It has been estimated through the Satellite and accreditation programmes.
Tourism Accounts Framework that tourism contributes The growth trajectory of Kerala as a tourism
5.06 per cent to the GDP of the country, of which 2.63 destination is distinctive, considering the fact that
per cent is direct and 2.43 per cent is indirect. The role the State does not have the notable heritage tourism
of the Government in tourism development has been assets that characterise destinations such as Delhi,
redefined from that of a regulator to that of a catalyst Rajasthan, or Uttar Pradesh. Although the State is
involving synergy and convergence with different a relative latecomer in the sector, it has managed to
stakeholders. Improving tourism infrastructure, easing carve a niche for itself in the national and international
the visa regime, assuring quality standards in the arenas. The destinations of the State showcase the rich
services of tourism service providers, projecting the natural beauty in a variety of settings, ranging from its
country as a round-the-year destination, and promoting beaches and backwaters to mountain landscapes. Most
sustainable tourism are some of the policy areas that importantly, the State has managed to attract visitors by
have been identified in order to increase and facilitate capitalising on its human resources potential, drawing
tourism in India. One of the notable initiatives of the on its image as a friendly, safe destination, and opening
Government of India in recent years is the introduction its doors to guests. Another feature of the State that has
of a facilitative visa regime, extending the e-visa facility attracted tourists is the character of its accommodation
to a majority of countries, thereby making it easier facilities, featuring local and small-scale options that
for visitors to travel to India. In 2019, a total of 2.93 provide a personal and intimate experience.
million foreign tourists arrived on e-tourist visas, a Approach during the 13th Plan period
growth of 23.6 per cent. After the boom period of the 1990s and early 2000s,
Tourism in Kerala the rate of growth of tourism arrivals declined in
In Kerala, the tourism industry is characterised by Kerala. Tourism, however, has continuing and
strong branding, consistent growth, diverse products, promising potential in the State. There is the vast and
132 | KERALA DEVELOPMENT REPORT 2021

relatively unexploited tourist potential of the northern Kerala, which was lagging behind other regions in
parts of the State. Backwater-based tourism is presently terms of arrivals. In addition, special attention was
confined to the Alappuzha region, and there are several to be paid to develop the potential for activity and
picturesque areas in other regions that are conducive adventure tourism, which has a rich resource base of
to the development of tourism. Similarly, in its effort natural forest. This involves the identification and
to attract new segments of travelers, the State has to development of new trekking routes, camping sites,
broaden its offerings to include active and adventure and adventure tourism centres, all of which was to be
tourism, special interest groups, and visitors interested done in collaboration with the Forest department.
in niche experiences. On the marketing front, efforts had to be taken
Tourism development requires technical expertise to refresh the Kerala tourism brand, infusing more
and all-round planning. It must cater to all sections of appealing campaigns catering to the diverse segments of
tourists, ranging from luxury tourism through lower- visitors. There would be focus on the cultural products
income family tourists to backpackers. During the 13th and experiences, such as the Kochi-Muziris Biennale
Plan period, the Government aimed to put in place and the Muziris, Alappuzha and Thalassery heritage
a new growth strategy for tourism in the State, with circuits.
ambitious targets of doubling the number of foreign Table 8.1 Plan outlay and expenditure in tourism
tourists, increasing domestic tourist arrivals by 50 per sector in Kerala, 2016-17 to 2019-2020 in Rs crore and
cent, and creating around 400,000 jobs in the sector per cent
over the Plan period.
Year Outlay Expenditure
Public spending on infrastructure and destination
development is still substantially more than investments 2016-17 311.56 285.76 (91%)
in marketing and promotion. The department sought 2017-18 342.73 308.32 (90%)
to correct this imbalance by aiming to raise the share 2018-19 379.00 289.31 (76%)
for tourism promotion to at least one-third of the 2019-20 372.37 192.62 (59%)
total allocation. In order to realise the full potential Major Achievements
of the State, the policy is to explore and utilise all 1) Tourist arrivals: After the 2018 floods, the tourism
available tourism resources, natural and cultural. This sector rebounded strongly in 2019 and witnessed the
involves the development of non-traditional tourism highest growth rate in domestic and foreign tourist
destinations and products, thus extending tourism arrivals in the last 24 years. There was 8.52 per cent
geographically across all regions, and throughout the growth in foreign tourist arrivals and 17.81 per cent
year. Significant investments were planned to develop growth in domestic tourist arrivals in the State in 2019
heritage resources that were hitherto under-exploited, than 2018.
and to promote international cultural events such as the 2) New Tourism Policy 2017: Ensuring tourist-friendly,
Kochi-Muziris Biennale. secure and safe destinations, formation of Kerala
In view of the capacity of the sector to absorb skilled Tourism Regulatory Authority (KTRA), development
manpower, the State also planned to expand operations of tourism projects of international standards in
in developing the human resources needed for the selected destinations through PPP mode, addressing
sector, preparing youth with the skill-sets required to key issues of the tourism industry such as waste
deliver high-quality services. The initiative aimed not management, initiating concerted efforts to tackle
only to upgrade human resources for domestic service issues of connectivity to Kerala from major parts of
providers in the State, but also to prepare young people the domestic and international markets, formulation
for employment in the tourism sector in other parts of of Kerala Tourism Entrepreneurship Fund (KTEF),
India and the rest of the world. Although there has been preparation of action plan for sustainable tourism
continuous increase in private investment in the sector, development.
the Plan laid emphasis on substantially increasing the 3) Champions Boat League: As part of a novel venture
number of places providing quality accommodation to protect and promote the tradition of the land, Kerala
in the State, aiming to double the number of classified Tourism has launched the Champions Boat League.
rooms and to add one thousand units of homestays. The main objectives of the event are conservation and
A thrust area identified for special attention was the promotion of Kerala’s traditional festivals, to create
development of properties and activities in northern an annual event to be marketed as a tourism product
 TOURISM | 133

and to showcase backwaters of Kerala to the world. ii) Advertisement campaign to promote tourism in the
It has been conceived on the model of the Indian off season “Come Out and Play.”
Premier League to transform the State’s legendary and 9) Emphasis on developing infrastructure in the
historically-significant vallamkali (snake boat race) into northern region, including infrastructure projects for
a world-class sporting event. developing basic amenities, information centres, and
4) Jatayu Earth Centre Project: Jatayu Earth Centre, a infrastructure for land and water-based adventure
unique combination of all aspects of tourism is the first tourism. Small and Medium Industries Leveraging
major BOT tourism project in the State which offers a Experiential Tourism (SMiLE) project implemented
complete Kerala, God’s own country experience to every by Bakel Resort Development Corporation (BRDC)
tourist. The project is spread over 65 acres of multi- aimed to promote and facilitate tourism based small
terrain landscape at Jadayupara near Chadayamangalam and medium entrepreneurial ventures, which have
in Kollam District. The Jatayu Adventure Centre offers resulted in 93 new entrepreneurs of which around 30
the largest adventure park within a natural terrain. per cent are women entrepreneurs, and opening of 50
Paintball, valley crossing, bouldering, zip line, trekking, units with accommodation for 400 tourists.
archery, rappelling, jumaring, and wall climbing are 10) Farming on fallow land: Kerala Tourism extended
among the myriad activities available in the centre. its support to the State Government’s Subiksha Keralam
It is a unique combination of artistry, mythology, project, an initiative to ensure food security in view of
technology, culture, adventure, leisure, and wellness. Covid-19 pandemic, and converted one acre of unused
5) Responsible Tourism (RT) Mission: A unique plot at Akkulam in Thiruvananthapuram into a banana
initiative of the department that has caught the attention farm.
of the world. At present there are 17008 individual/ 11) Covid loss assistance Scheme: The Government has
group units (out of which 13567 women owned/led announced a scheme to support the stakeholders in the
units) registered with RT Mission and 92980 local tourism industry for the revival of the tourism sector in
community members are directly or indirectly linked the wake of Covid-19.
with tourism and generating income. The registered 12) Infrastructure development projects:
units of RT Mission generated 25.50 crore from the i. Set up Miniature Railway at Veli, Kanakakkunnu
formation of the Mission. Digital Museum showcasing history of Travancore,
6) Launched first phase of barrier-free tourism project light and sound show at Thenmala Ecotourism Centre,
for making 70 destinations across the State disabled Renovation of Chalai market and Mittayitheruvu ,
and elderly friendly. Vagbhadanantha Park, Vellar Arts and Crafts Village ,
7) IT initiatives completed first phase of Panchalimedu tourism project
i) Kerala Tourism’s Facebook page (more than 37 at Idukki , second phase of Madavoorpada project,
lakh followers), Instagram account (more than 3 lakh Akkulam Tourist Village.
followers), and Twitter account (19 lakh followers) ii. New buildings for Food Craft Institute at Uduma
occupy first position in India. and Kannur and completed construction of SIHM
ii) Prepared e-catalogue for Kerala tourism videos. building at Kozhikkode.
iii) Kerala tourism resource mapping for selected iii. Heritage Projects: notable projects focused on
destinations. developing destinations were Muziris, Thalassery, and
8) New and innovative marketing campaigns: In order Alappuzha heritage circuits. The second phase of the
to retain market supremacy, Kerala Tourism launched Muziris Project is in final stage. Thalassery Project covers
innovative marketing campaigns like digital and social 3 districts and is divided into 4 circuits and total of 61
media campaigns that resulted in attracting more destinations are included under the project. Alappuzha
visitors and succeeded in branding Kerala. Project – construction of Living Coir Museum, Coir
i) Human by Nature Campaign: Internationally Factory Museum, Coir History Museum, and Yawn
acclaimed campaign which showcased the culture and Museum is nearing completion.
daily life of the people of Kerala and the strategy behind iv. Centrally Sponsored Schemes: Completed
the campaign was the revival of the tourism sector that Pathanamthitta-Gavi-Wagamon-Thekkadi project
had suffered in the wake of 2018 flood and the outbreak under Swadesh Darshan Scheme, Sree Padmanabha
of Nipah virus. About 3.10 crore people watched this Swami-Aranmula-Sabarimala project under Spiritual
campaign online. Tourism Project and Development of Guruvayur
134 | KERALA DEVELOPMENT REPORT 2021

Temple under Pilgrimage Rejuvenation and Spiritual Seasonality in foreign tourist arrivals
Augmentation Drive (PRASAD) scheme. In 2019, around 14 per cent of the total foreign tourists
13) Human resources development visited the State in January followed by December
i. Initiated diploma courses in adventure tourism (around 13 per cent). January 2018 also witnessed
ii. Development of web portals: Tourism Careers in maximum number of foreign tourist arrivals followed
and tourism and hospitality. by December. The lowest foreign tourist traffic in 2019
iii. 114 regional and State-level tourism guides was registered in June (3.83 per cent) and this trend has
underwent training programmes conducted by been continuing for the last 12 years. Figure 8.2 depicts
Kerala Institute for Tourisim and Travel Studies the month-wise comparison of foreign tourist arrival in
(KITTS). Kerala from 2010 to 2019.
iv. More than 80 per cent students from KITTS, State Over the last decade, the United Kingdom, with
Institute of Hospitality Management (SIHM), and a share of around 15 per cent, has been topping the
FCI got placement. list of the countries from which foreign tourists come
Tourist Arrivals to the State. The USA occupied the second position,
In Kerala, the tourism sector rebounded strongly in with around nine per cent share. France and Germany
2019 after the 2018 floods and 2019 witnessed the are the other major markets. A notable feature in
highest growth rate in domestic and foreign tourist foreign arrivals in recent years is the rapid increase in
arrivals in the last 24 years. There was 8.52 per cent arrivals from the Kingdom of Saudi Arabia and other
growth in foreign tourist arrivals and 17.81 per cent GCC countries, indicating a sharp rise in interest in
growth in domestic tourist arrivals in 2019 over 2018 these markets for destinations in Kerala. The Tourism
in the State. Figure 8.1 reveals the trends in the arrival department, with its partners, has been consistently
of foreign tourists in India and Kerala during the period investing in developing these markets, through
2010–2019. advertising campaigns, participation in travel fairs and
Although the growth rate in Kerala was higher organisation of trade meets. Another feature that may
than that of India in most years, the State has been have contributed to this phenomenon is the increasing
witnessing a declining growth rate after 2010. The connectivity of destinations with source markets, with
number of foreign tourists who visited Kerala in 2019 flights by several international carriers connecting three
was 11,89,771 as against 10,96,407 in 2018, recording airports of the State to capitals of the GCC countries.
8.52 per cent growth as compared to 2018. Figure 8.3 illustrates the share of foreign tourist arrivals

Figure 8.1 Annual growth rates in foreign tourist arrivals (FTAs) in India and Kerala from 2010 to 2019 in per cent
Source: Department of Tourism, Government of Kerala
 TOURISM | 135

Figure 8.2 Month-wise comparison of foreign tourist arrivals in Kerala from 2009 to 2019 in number
Source: Department of Tourism, Government of Kerala; Markets of Foreign Tourist Arrivals

Figure 8.3 Share of foreign tourist arrival from top ten countries of the world to Kerala in 2018
and 2019 in per cent
Source: Department of Tourism, Government of Kerala

to Kerala from top ten countries in 2018 and 2019. visiting the State indicate that around 57 per cent of
For the last few years, the two districts that recorded tourists visited Central Kerala, comprising Ernakulam,
the largest foreign tourist arrivals in the State were Idukki, Alappuzha, and Thrissur districts. Thirty
Ernakulam and Thiruvananthapuram. Pathanamthitta seven per cent of foreign tourists visited South
and Palakkad recorded the lowest number of foreign Kerala, comprising Thiruvananthapuram, Kollam,
tourist arrivals. Region-wise figures of foreign tourists Pathanamthitta, and Kottayam districts. It is notable
136 | KERALA DEVELOPMENT REPORT 2021

Figure 8.4 Region-wise foreign tourist visits in Kerala in 2019 in per cent
Source: Department of Tourism, Government of Kerala.

that the six districts of North Kerala received only six State which dropped again in 2018 and reached 6.35
per cent of all foreign visitors to the State. Figure 8.4 per cent. But in 2019, the State witnessed 17.81 per
presents the region-wise arrival of foreign tourists in cent growth in domestic tourist arrivals.
Kerala in 2019. The month-wise data on the arrival of domestic
tourists in Kerala shows that the highest inflow of
Domestic tourist arrivals tourists was for the month of December and the lowest
The number of domestic tourist arrivals to Kerala in was in the month of August. Figure 8.6 portrays the
2019 was 1,83,84,233, which is 17.81 per cent higher month-wise arrival of domestic tourists in Kerala from
than the previous year. Figure 8.5 reveals the trends in 2010 to 2019.
the arrival of domestic tourists in Kerala during the The data on the distribution of domestic tourist
period from 2010 to 2019. visits in Kerala by State of origin show that about 64
From 2009 to 2011, the growth rate in Kerala with per cent originated within the State. With respect to
respect to domestic tourist arrivals increased, and then the distribution of other States, Tamil Nadu ranks
began to decrease. The State had been witnessing a first, with a share of around nine per cent, followed
steady growth rate during 2012-2014. In 2015, the by Karnataka (six per cent) and Maharashtra (four per
growth rate was 6.59 per cent, which dropped to 5.67 cent). Figure 8.7 shows the State-wise share of domestic
per cent in 2016. But the year 2017 recorded 11.39 per tourist arrivals to Kerala from the top 10 States of origin
cent growth in the arrival of domestic tourists in the in 2018 and 2019.

Figure 8.5 Annual growth rates in the arrival of domestic tourists in Kerala from 2010 to 2019 in per cent
Source: Department of Tourism, Government of Kerala
 TOURISM | 137

Figure 8.6 Month-wise arrival of domestic tourists in Kerala from 2010 to 2019 in number
Source: Department of Tourism, Government of Kerala; Markets for Domestic Tourism.

Figure 8.7 Share of domestic tourist arrivals from top ten States to Kerala in 2018 and 2019 in per cent
Source: Department of Tourism, Government of Kerala.

Ernakulam and Thiruvananthapuram were the

leading districts, with Pathanamthitta bringing up the
rear. A region-wise analysis that districts of Central
Kerala get about 53 per cent of domestic visits, followed
by South Kerala (25 per cent) and North Kerala (22 per
cent). Figure 8.8 illustrates region-wise domestic tourist
visits in Kerala in 2019.
Economic impact of tourism
Foreign exchange earnings from tourism in the year
2019 were Rs 10,271 crore and domestic tourist earnings
were Rs 24,786 crore. Total earnings, including direct
and indirect means, in 2019 was Rs 45,011 crores,
Figure 8.8 Region-wise domestic tourist visits in which is an increase of 24.13 per cent over 2018. Figure
Kerala in 2019 in per cent 8.9 presents total earnings from tourism in Kerala from
Source: Department of Tourism, Government of Kerala 2010 to 2019.
138 | KERALA DEVELOPMENT REPORT 2021

Figure 8.9 Total earnings from tourism in Kerala, from 2010 to 2019 in Rs crore
Source: Department of Tourism, Government of Kerala.

Initiatives of Department of Tourism Express, off-season promotion campaign and virtual

With a view to give a strategic direction and thrust reality houseboat installation. The department led
to the sector, Government issued a Tourism Policy, delegations of private sector businesses on promotion
outlining the new policy framework and significant and marketing initiatives, comprising of over 25
areas of attention. Prior to the beginning of the tourism international roadshows, twelve international travel
season, the department took the lead in ensuring the fairs, sixty national travel fairs, and over thirty national
involvement of all concerned agencies, and embarked partnership meets.
on the “Green Carpet” project, which focuses on As part of a novel venture to protect and promote
cleanliness and safety in major destinations. More than the traditions of water sports, Kerala Tourism launched
300 projects, with a commitment of over 300 crore the Champions Boat League, conducted at 12 different
rupees, were initiated in the last four years with a view venues across Kerala. The main objectives of the
to develop infrastructural facilities in destinations, event are the conservation and promotion of Kerala’s
most of which have been completed. Special emphasis traditional festivals, the creation of an annual event to
has been given to the Malabar region, with over 100 be marketed as a tourism product and exposure to less-
projects sanctioned. The 325-crore river-cruise project known backwaters.
centred on the eight rivers in North Kerala will open Among the notable projects focused on developing
up this picturesque region for tourism, leading the way destinations, special mention must be made of the
to more investment. The Jatayu Earth Centre, opened Muziris, Thalassery, and Alappuzha heritage circuits.
recently, is the best example of a vibrant public-private There has been an emphasis on developing infrastructure
partnership model. Four projects taken up under in the northern region, including infrastructure projects
Alappuzha heritage tourism project at a budget of Rs for developing basic amenities, information centres,
29 crores have been completed. and infrastructure for land and water-based adventure
The Department of Tourism has taken several tourism. Small and Medium Industries Leveraging
initiatives to promote destinations in the State across Experiential Tourism (SMiLE) project implemented
national and international markets. The Kerala by Bekal Resorts Development Corporation (BRDC)
Tourism YouTube channel is a very popular channel, aimed to promote and facilitate tourism based small and
with more than 170,000 subscribers. A GIS-based medium entrepreneurial ventures, which have resulted
festival Inventory of Kerala has been prepared, in 93 new entrepreneurs of which around 30 per cent
recorded by over a thousand festivals of the State. In are women entrepreneurs, and opening of 50 units
order to retain its leadership position, Kerala Tourism with accommodation for 400 tourists. Infrastructure
launched innovative marketing campaigns on digital development for Guruvayur was taken up under
and social media platforms such as Kerala Blog Pilgrimage Rejuvenation and Spiritual Augmentation
 TOURISM | 139

Drive (PRASAD) scheme of Government of India. tourism projects are getting expanded to the Kuttanad
Barrier Free Tourism to make destinations accessible project area. Aymanam Village which comes under the
for people with disabilities by providing differently- Kuttanad project area, has been declared as the first
abled friendly infrastructure was taken up in seventy Model RT Village.
destinations. A comprehensive programme to develop Impact of Covid-19 on the Tourism Industry
ecotourism has been initiated. Tourism is one of the sectors most affected by the
As human resource development has been identified Covid-19 pandemic, which affected economies,
as one of the thrust areas in tourism, there have livelihoods, public services and opportunities in
been several important steps taken in the State. A all continents. All parts of the vast value-chain of
permanent campus for the State Institute of Hospitality tourism have been affected. Export earnings from
Management was opened in Kozhikode. The Kerala tourism could fall by $910 billion to $1.2 trillion in
Institute for Tourism and Travel Studies (KITTS) 2020. This will have a wider impact and could reduce
launched an online job portal and started a diploma global GDP by 1.5 per cent to 2.8 per cent. As many
and certificate course in adventure tourism. In addition, as 100 million direct tourism jobs are at risk. Also at
114 regional and State-level tourism guides underwent risk are sectors associated with tourism such as labour-
training programmes conducted by KITTS. intensive accommodation and food services industries,
The innovative work of the department has won which provide employment for 144 million workers
numerous national and international awards. Prominent worldwide.
among these are the UNWTO Award for Emerging The Covid-19 pandemic brought the businesses
Global Destinations – Accessible Destination award of all tourism stakeholders to a standstill, affecting
2019 for Barrier-free Tourism Project implementation, the livelihood of entrepreneurs as well as employees
the PATA Grand Award for Kerala Tourism “Human in the industry. The tourism industry in the State is
By Nature” Campaign, the Das Goldene Stadttor 2020 facing unprecedented losses in the wake of widespread
for Kerala Tourism “Human By Nature” campaign, disruptions in travel and restrictions in accommodation,
the PATA Gold award for Kerala Tourism Campaign entertainment and activities.
“Come Out and Play,” the PATA Gold Award for Anticipating 10 per cent growth over 2019, the
Kerala Tourism website, and the PATA Gold Award for number of foreign tourist arrivals estimated for
women empowerment. the period from January 2020 to September 2020
Responsible Tourism Mission was 901,971. However, as per estimations by the
A unique initiative of the department and one that has Department after the onset of Covid-19 pandemic, the
caught the attention of the world is the Responsible number of foreign tourist arrivals was only 349,575 in
Tourism (RT) movement that the State has started in this period, a 61 per cent decline. Similarly, assuming
several destinations. With its emphasis on economic, a 20 per cent growth in domestic tourist arrivals, the
social, cultural and environmental responsibility, projected number of tourist arrivals between January
the RT Mission of the department has forged a new to September, 2020 was 1,58,21,071. However, the
path in destination development, empowering local estimated number of domestic tourists in this period
communities to take advantage of the economic is only 39,31,591. The decline in numbers is almost 75
opportunities presented by tourism. At present, per cent. The total loss in the sector from January to
there are over seventeen thousand individual and September 2020 is Rs 24,971 crore. The loss in earnings
group units, out of which over thirteen thousand are from decline in foreign tourist arrivals is estimated to be
women-led units, registered with RT Mission under Rs 5,274 crore and from domestic tourist arrivals is Rs
various categories. There are 92,980 local community 19,697 crore.
members directly or indirectly linked with tourism A scheme to support stakeholders in the tourism
and generating income. The registered units of the industry for the revival of the tourism sector has been
RT Mission generated Rs 25.50 crore. 850 families announced. The Government of Kerala has announced
are linked with the Experiential Tour Packages of RT the Chief Minister's Tourism Loan Assistance Scheme
Mission; 60 packages are operational. RT Mission (CMTLAS) in a bid to support the State's travel and
launched Clean Kerala Initiative to keep prime tourism tourism sector. While entrepreneurs/establishments
spots across the State plastic and garbage free. As in the travel and tourism sector can opt for Tourism
part of the Kuttanad Package second phase, various Working Capital Support Scheme (TWCSS) to stay
140 | KERALA DEVELOPMENT REPORT 2021

afloat, employees engaged in the industry can avail of Irrigation and Infrastructure Development Corporation
short-term personal loans under Tourism Employment (KIIDC) as SPV.
Support Scheme (TESS). Houseboats owners can make Looking Ahead
use of Tourism Houseboats Support Scheme (THSS) to Over the past few years, a series of natural disasters,
get financial assistance for executing urgent repairs and demonetisation, and the pandemic have all adversely
maintenance to the assets. Under the Tourism Guides affected the tourism sector in Kerala. Globally, tourism
Support Scheme (TGSS), eligible tourist guides will be industry is one of the earliest to be affected by such
given a one-time financial assistance. Through these problems, and often the last to recover. As the world
relief measures, the Government of Kerala intends to grapples with dealing with the pandemic and its
help all stakeholders in the industry to tide over the aftermath, the tourism industry will struggle to regain
current crisis and start functioning as soon as the its trajectory, affected as it is by the travel restrictions,
pandemic is contained. closure of businesses and sluggish growth of the national
KIIFB Funded Projects and global economies.
However, there are several indicators that Kerala
Alappuzha heritage project
will lead the country as it recovers from the effects of
The Alappuzha heritage project is part of a comprehensive
Covid-19. As statistics have shown, over 90 per cent of
ongoing attempt to revive Alappuzha and showcase its
the tourism business in the State is generated through
golden age. Various heritage, religious, and industrial
domestic tourism, which is relatively more agile in
structures in the town, which have much historical
recovering from shocks as compared to inbound
importance will undergo conscious conservation, by
tourism from outside the country. The sharp spike in
preserving the physical and cultural aspects, some being
arrivals registered during 2019 is a clear pointer to the
converted into museums and other into public spaces
resilience of the sector, driven mainly by buoyancy in
as part of this project, which will be implemented by
domestic tourism. Indeed, the sector is showing signs
INKEL. This project has been considered in five phases
of activity and increased business, almost immediately
and KIIFB has given approval for a total outlay of Rs
after the restrictions on inter-State travel were lifted.
76.06 crore. The approved projects include renovation
The Kerala brand still remains attractive and desirable,
of museums, temples, masjids and other heritage
and it is only reasonable to assume that the industry
buildings in Alappuzha, construction of sea-pier, canal
will rapidly improve once conditions turn favourable.
side development etc.
The tourism industry and entrepreneurs will need
Thalassery heritage project working capital infusions to spur the revival, and the State
The Thalassery Heritage Project (THP) is a project aimed would do well to step in and facilitate this process through
at exposing the rich cultural heritage of Northern Kerala, provision of easy financing options. The focus should be
especially of the Malabar region, before the tourists. Over firmly on revival of domestic tourism, which will call for
61 heritage destinations are covered within the project a more focused and aggressive marketing campaign in
spreading across three districts Kannur, Kozhikode, important source markets within the country. Keeping in
and Wayanad, with Thalassery in Kannur as the centre mind the fact that competing foreign destinations such
and connected by unique storytelling experience as Sri Lanka, Maldives and South-East Asian countries
circuits. The destinations majorly lie along Kannur would go all out to woo the same target markets, it is
district under Thalassery, Thaliparamba, Kannur, and imperative that the department embark on a series of
Iritty taluks. A few stretches up to Mananthavady in promotional programmes that will showcase the myriad
Wayanad district and Vadakara in Kozhikode district. attractions of the State. In parallel, the department has to
The unique culture and art forms, myths in the lines of work closely with industry associations so that there is a
native traditions, and the life and legacy of Pazhassiraja, synergistic partnership between the efforts of the private
etc. are categorised into four circuits or trails for the sector and the overarching campaigns of the department.
tourist to experience the unexplored heritage sites of The industry has several issues with organs of the
North Kerala. The circuits are Harbour town circuit, State, such as restrictive excise policies, infrastructural
Pazhassi circuit, Folklore circuit, and Cultural circuit. bottlenecks in destinations, relationships between
Development of 28 destinations are considered under destination management entities and tourism service
KIIFB funding for total estimated cost of Rs 78.16 providers and other regulatory bodies. It is important to
crore and the project will be implemented by Kerala generate a positive and industry-friendly approach, and
 TOURISM | 141

it is incumbent on the tourism department to take up Kerala, to which connectivity will continue to improve.
these issues vigorously with sister departments and find The emphasis must be on facilitation of conducive
solutions. business environment for micro, small and medium-
In the long run, Kerala should strive to strengthen sized enterprises (MSMEs), which form the backbone
its brand positioning, creating and promoting of private investment. Care must be taken to ensure
experiences that are unique and attractive. New efficient use of resources, environmental protection,
destinations and products have to continuously be preservation of cultural values and heritage. Kerala
introduced, maintaining visitor interest and prompting must continue to strive to strengthen its positioning
repeat visits. There is clear scope for expanding as a resilient, competitive, resource efficient and
operations into new areas, particularly in North environmentally sensitive destination.
142 | KERALA DEVELOPMENT REPORT 2021

Chapter 9
Cooperatives in Kerala:
The Movement, Positioning and the Way Forward
Introduction transformed into the Kerala State Cooperative Bank.
In Kerala, the growth of the cooperative sector, especially In fact, the first cooperative legislation in Travancore,
in the northern parts of the State, was intertwined with the Travancore Cooperative Societies Regulation Act
the movements for Independence and social reform. of 1914, had provision to encourage the funding of
The Travancore Cochin Cooperative Societies Act cooperatives.
of 1951 brought together pre-Independence laws The 13th Five-Year Plan document indicates that
in the States of Travancore and Cochin. The Kerala “the development of co-operative credit institutions
Cooperative Societies Act of 1969 emerged from this was the key to the historical weakening of usury in rural
Act. Cooperatives, which brought together employees, areas of the State.” As the Report of the Committee on
workers, farmers, fish workers, small producers, and the impact of demonetisation appointed by the State
other groups into organised self-reliant groups, were Planning Board observes, “Cooperation and primary
influenced by the social and political factors of the cooperatives are Kerala’s strength, a rich legacy of
period. our freedom movement. People’s confidence in these
Some of the first trade unions, such as Sree Narayana institutions is part of Kerala’s historical heritage.”
Beedi Thozhilali Union in Tellicherry, formed in 1934, Today, these institutions form the backbone of much
were of beedi workers that sought to ensure higher of rural economic activity in the State.
wages and better working conditions for the workers. Cooperatives in Kerala operate under the jurisdiction
The Kerala Dinesh Beedi Cooperatives, which at its of different departments of the Government. The largest
peak gave employment to more than 25,000 workers and the most significant segment come under the
with high wage and non-wage benefits in the districts administrative control of the Registrar of Cooperative
of Kannur, Kasaragod, and parts of Kozhikode, is Societies (RCS) in the Department of Cooperation. It
an outstanding example of a successful cooperative. includes apex cooperatives, federal cooperatives, district
Another outstanding example of the success of cooperative banks, credit cooperatives, consumer/
cooperation is the Uralangal Aikya Nanaya Sangham school/college cooperatives, marketing, and processing
that was registered in Kozhikode District in 1922. cooperatives, and others. Together, there were around
Today it is the Uralungal Labour Contract Cooperative 15,761 cooperatives in 2019.
Society (ULCCS). ULCCS is one of the largest In addition to these cooperatives, there are also
construction cooperatives in Asia, and has diversified around 6000 cooperatives that operate under the
into information technology parks and even a special jurisdiction of other departments of the Government.
economic zone. They include 604 khadi and village industry
In the early years, these societies were registered cooperatives, 1190 coir cooperatives, 611 handloom
with unlimited liability. The recovery of loans became cooperatives, 3284 dairy cooperatives, 394 industrial
a problem and many societies were liquidated because and 749 fisheries cooperatives. Dairy cooperatives in
of excess liability over assets. The societies were changed Kerala operate in three tiers. The Kerala Cooperative
to limited liability enterprises from 1918 onwards. The Milk Marketing Federation Ltd (KCMMF) is the
Land Mortgage Bank was formed in 1932 to provide apex body. Below, there are three regional cooperative
long-term loans. The Cochin Co-operative Societies milk producer unions and further below, there are the
Act was enacted in 1913. The first co-operative society village-level dairy cooperatives. Matsyafed is the apex
registered under this Act was “The Advanced Co- cooperative of the primary-level fishermen welfare
operative Society.” cooperative societies.
Cooperatives in central and southern Kerala were Cooperatives in Kerala play a vital role in mobilising
the beneficiaries of the policies of the Princely States people and pooling their resources to meet the common
of Travancore and Cochin. The first cooperative that needs of members and thereby the larger society. The
was registered after the passage of the Travancore approach paper to the 13th Five-Year Plan prepared
Cooperative Societies Regulation Act of 1914 was the by Kerala State Planning Board in 2017 indicated that
Travancore Central Cooperative Bank, which was later there were 70 types of cooperative societies engaged
 COOPERATIVES | 143

Table 9.1 Budgetary support for cooperatives in Kerala, 2012-13 to 2020-21 in Rs crore
Year State plan outlay SDG support Total outlay Gross plan
State Plan NCDC State plan Central State plan Central
support share share
12th Five-Year Plan
2012-13 62.00 50.00 0 0 62.00 50.00 112.00
2013-14 70.00 30.00 0 0 70.00 30.00 100
2014-15 83.39 35.00 106.39 51.34 189.78 86.34 276.12
2015-16 85.39 45.00 14.28 0 99.67 45.00 144.67
2016-17 95.00 45.00 0 0 95.00 45.00 140
13th Five-Year Plan
2017-18 130.00 55.00 28.76 100 158.76 155.00 313.76
2018-19 154.75 65.00 324.95 100 479.70 165.00 644.7
2019-20 154.25 65.00 28.1 5.31 182.35 70.31 252.66
2020-21 134.96 65.00 4.62 22.5 139.58 87.50 227.08
Notes: SDG stands for supplementary demand for grants; NCDC stands for National Cooperative Development
Corporation.
Source: Kerala State Planning Board.
in various kinds of economic and business activities effectively utilised for food production by channelising
in the State. They were categorised as apex societies it through 1643 Primary Agricultural Cooperative
(12), federal societies (4), cooperative central banks Credit Societies (PACS) in the State.
(14), credit societies (4045), consumer societies (20), Emerging Issues and the Way Forward
primary societies (4651), marketing and processing In this section, we highlight some of the major issues
societies (615) and miscellaneous societies (5926). that have plagued the cooperative sector in Kerala and
In 2020, the 13 central banks (the District Central the potential steps to address them.
Cooperative Banks) were merged with the apex bank Reduction in the proportion of non-functional to
(the Kerala State Cooperative Bank) to form the new functional societies
Kerala Bank. There has been a surge in the number of cooperative
Thus, unlike in the advanced economies where societies in Kerala over the years. Between 2013 and
cooperative movements were largely outside the sphere 2019, the total number of societies under the RCS
of Government influence, the cooperative sector in increased by 10 per cent from 14,205 to 15,761 (Table
Kerala experienced an active role of the Government in 9.2). However, there has not been a commensurate
their development and functioning. In fact, most of the reduction of growth in the number of non-functional
cooperatives in Kerala have a Government shareholding societies in Kerala.
in its paid-up capital with the levels differing widely By the end of March 2019, one in every three societies
across regions and sectors. remained defunct. The policy on the cooperative sector
Unlike other States, the cooperative movement needs to address this aspect. These societies are either
has been strongly supported through successive plans dormant or are under liquidation. For example, as
and supplementary grants in Kerala (Table 9.1). on March 31, 2017, there were 680 societies under
Further, the Annual Plans lay emphasis on making liquidation, which was 4.3 per cent of the total number
sectors “cooperative friendly,” thereby enhancing the of societies.
effectiveness of scheme implementation by departments. Table 9.3 shows the distribution of non-functional
In the project document of Subhiksha Keralam project, societies in different districts of the State. There is a
the Kerala State Planning Board gave major emphasis higher proportion of non-functional societies in three
to the promotion of farming through cooperative districts – Idukki, Thiruvananthapuram, and Kollam.
institutions with cooperative credit support. The Special The reasons for this may be largely attributed to the
Liquidity Facility (SLF) extended by NABARD was financial performance of individual societies, the
144 | KERALA DEVELOPMENT REPORT 2021

Table 9.2 Year-wise distribution of non-functional cooperative societies in Kerala, 2013 to 2019
Period Total number of Number of Number of non- Share of non-functional
societies functional Societies functional Societies to functional (%)
March 2013 14,205 10,830 3375 31
March 2014 14,602 11,270 3332 30
March 2015 14,896 11,565 3331 29
March 2016 15,287 11,908 3379 28
March 2017 15,428 11,966 3462 29
March 2018 15,624 11,892 3732 31
March 2019 15,761 11,994 3767 31
Source: Compiled from the Economic Review, various years, Kerala State Planning Board

Box 9.1
Kerala Bank
The decision of the State’s cooperative sector to amalgamate the District Cooperative Banks is historic. The
State, which has a long history of cooperative-led rural growth, has ushered in a transformative paradigm
shift in forming the Kerala Bank. Chief Minister Pinarayi Vijayan played a pivotal role in conceiving and
leading the idea of creating a large cooperative bank through amalgamation to ensure that credit-led growth
of the State achieves a higher trajectory. The amalgamated Kerala State Cooperative Bank, known as Kerala
Bank, came into being on November 29, 2019. In terms of business and number of branches, it is the second
largest bank in Kerala. The total business of the bank is over Rs 1 lakh crore. With 769 branches, 7 regional
offices, and 13 credit processing centres, the bank has successfully rolled out priority-sector lending products
in the sectors of agriculture, MSME, retail, and housing. The Kerala Bank can transform into a priority bank
of Government of Kerala in providing loans to the beneficiaries of approved schemes of departments such as
agriculture, small-scale industries, fisheries, animal husbandry, and dairy, and also Kudumbashree (Self-Help
Groups). The Kerala Bank strives to provide world-class and IT-enabled banking to villages, farmers, and the
unorganised sector. The Bank has formulated and implemented schemes for the effective implementation
of programmes for financial inclusion for all sectors in the State. The Kerala Bank has the vision to reach
all marginalised sections of the people and to become a universal bank covering all sections of the people.

weak supervisory structure and lack of coordinated Cells (PDC) with the help of NABARD for improving
efforts to understand the problems of these societies to the working of PACS.
suggest remedial actions. Through the Plan schemes, Need for technological interventions
the Government allocates considerable amount of Technology infusion is a grey area for Kerala
assistance to these societies every year. But apart from cooperatives. There have been considerable efforts
such endowments, there has been very little technical
to implement IT-based solutions for the financial
support provided to these societies to overcome their
management of individual PACS. However, there has
problems. Any attempt at providing generalised
also been very little headway in introducing a unified
solutions may not produce the desired results. The
software for all PACS. Because of this, customers of
Department of Cooperation should facilitate the
individual PACS are unable gain access to the facilities
auditing of each of these societies by a team of experts
of other PACS. Through technology adoption by
consisting of professionals. Once such an audit is
completed, the issues including human resources, way of a unified platform, customers can move from
technical, and financial can be better understood. a captive environment to a trajectory of broader and
The northern districts which show lesser percentage more convenient banking experience.
of non-functional societies have better supervisory Formation of subsidiary enterprises
mechanisms. For example, the (erstwhile) District The new age challenges for cooperatives demand the
Cooperative Banks had established PACS Development alignment of trust and technology with the spirit
 COOPERATIVES | 145

Table 9.3 Distribution of non-functional cooperative societies in Kerala, 2017

District Total no. of No. of functional No. of non- Share of non-functional
societies societies functional societies to total societies (%)
Thiruvananthapuram 2139 1424 715 33
Kollam 1269 879 390 31
Pathanamthitta 653 559 94 14
Alappuzha 1027 773 254 25
Kottayam 1020 797 223 22
Idukki 740 426 314 42
Ernakulam 1406 1145 261 19
Thrissur 1478 1123 355 24
Palakkad 917 710 207 23
Malappuram 1089 942 147 13
Kozhikode 1221 1099 122 10
Wayanad 437 244 193 44
Kannur 1415 1318 97 7
Kasaragod 617 527 90 15
State 15,428 11,966 3462 22
Source: RCS, Kerala; Statistical Abstract 2016-17.
of cooperation. Cooperatives need to sow the seeds Correcting the age factor
of the establishment of successful enterprises by the It is often noticed that there is an absence of
transformation and creation of subsidiaries. By the involvement of youth in the business and development
word transformation, we mean adjusting to the new activities of rural cooperatives. This makes cooperatives
financial standards, new technologies, and a new aging enterprises. The previous point of transformation
outlook for creating value-driven enterprises. The new is the key, which will bring youth into the sector. The
age enterprises are driven by valuation rather than European cooperative enterprises stand apart in the
profits. The valuation is based on future cash flows and world because of the active participation in governance
exponential growth potential. and use by the youth. As an economic institution,
Cooperatives may not be able to fund subsidiary cooperatives compete with other forms of organisations.
enterprises such as Farmer Producer Organisations The potential customer base has a significant proportion
(FPO) fully from their own sources. Substantial of youth. The co-operative institutions have to evolve
funding needs to come from outside the system. The
into user-friendly institutions free from archaic rules of
funding support usually depends on how much value
governance and develop products that focus on youth.
the enterprise brings to the investor, which appears to
The 10th and 11th objectives of Kerala State
be in contradiction with the model of cooperatives,
Cooperation Policy mention the involvement of youth.
particularly with regard to ownership. The ownership
This needs to be implemented in its letter and spirit.
lies with the members and the members normally
do not focus on long term returns and accumulation The AI-based solutions play a greater role in creating
of wealth for future returns, which in turn are the a favourable ecosystem for attracting the youth. The
drivers of valuation. The 14th objective of the Kerala cooperatives can also engage in funding new enterprises,
Cooperative Policy deals with revisiting the provisions especially the start-ups. Cooperative institutions with
of KCS Act to face newly emerging situations. We need their local feel and presence can turn themselves into
to initiate and coordinate efforts to transform the sector local “engines of growth” through technology adoption
so that value is created in the sector to pave way for and professionalisation, thereby providing gainful
additional investment from diverse sources including employment to the rural youth and transforming
private equity. themselves into “youth driven institutions.”
146 | KERALA DEVELOPMENT REPORT 2021

Professional approach to governance commitment to professionalisation and technology

It is well known that any financial restructuring of infusion, and to transform the Bank into a leading
cooperatives without addressing the root causes of modern financial institution. The base entities also have
their weaknesses would fail to create a sustained to be professionalised in the process. The Cooperative
revival of the system. Kerala has already taken the Policy, in its 6th objective, states that “the State shall
bold step of transforming its bulky three-tier structure infuse professionalism in cooperative department and
of cooperatives to a two-tier structure of cooperatives transform the department so that it keeps pace with the
in 2020 by forming the Kerala Bank. The approach changes that take place in technological and regulatory
to the formation of Kerala Bank clearly indicates a environments.” This process needs to be hastened.
 Chapter 10
Human Development
School Education Surges Ahead India as a whole. The School Education Quality Index
The 13th Plan was a period of transformation in the (SEQI), with reference year 2016-17, was developed
sphere of school education, particularly in government by the NITI Aayog to provide insights and data-based
and aided schools. The period was marked by new feedback on the success of school education across the
investments in school education, particularly in States and Union Territories of India. According to
infrastructure, the improvement of the quality of schools the report, Kerala, with a score of 82.2 per cent score,
and instruction, and by the improvement of social topped the table.
coverage and inclusion in the school education system. School Education in the 13th Plan Period
High quality school education was made available to School Education Mission
wider sections of the people than ever before. As part of the Nava Kerala Mission, an overall quality-
The bedrock of Kerala’s development achievements based school education developmental programme
is school education, because school education was called the “Public Education Protection Mission”
the instrument that made progress in other fields (Pothuvidyabhyasa Samrakshana Yajnam) was launched
possible. The task that the Government of Kerala set by the Government. Its focus has been on raising the
in this 13th Plan period was to make the best possible quality of services in school education in the public
school education available to every child in the State, sector. Through various programmes for supporting
regardless of considerations of income, region, or social public educational institutions across the State, the
group. Kerala achieved universal literacy in the 1990s mission brought together teachers, parents, student
and has also achieved the goal of free and universal alumni, and people’s representatives on a single
school education for its children. platform, encouraging them to work in a people’s
A remarkable outcome of recent policy is that campaign mode.
more than 680,000 additional children enrolled in Local government institutions and State Plan
Government and aided schools over a four-year period. programmes have contributed much to the overall
Status of Schools in the State development and improvement of physical infrastructure
There were 12,961 schools in Kerala in 2018-19. Of and common facilities in Government schools in the
them 4695 (36.22 per cent) were government schools, State. KIIFB has also played a significant role in the
7216 (55.68 per cent) were aided schools, and 1050 remarkable enhancement of school infrastructure
(8.10 per cent) were unaided schools. Of all schools, after 2016. With KIIFB assistance, international-level
2077 schools were higher secondary schools (HSS), infrastructure in selected government schools and hi-
with a total of 7249 batches. Of these 839 (40.4 per tech class rooms in all government and aided schools
cent) were government schools, 858 (41.3 per cent) has been created.
were aided schools and the remaining 380 (18.3 per Increase in enrolment
cent) were unaided schools. There were 389 vocational The most telling proof of the success of the school
higher secondary schools (VHSS), with a total of 1101 education policy is the extraordinary surge in enrolment
batches. Of these, 261 were in the government sector in government schools over the last few years. This
and 128 in the aided sector. reverses the previous trend of an exodus to the private
National sources of data consistently rank Kerala as sector of school education. All over India, parents who
a better performer than the rest of India in respect of want an education of quality for their children have, in
key indicators in school education. According to the recent years, had to resort to high-fee private schools.
National Family Health Survey, the median number The improvement in facilities in government and aided
of completed years of schooling for women above schools has created a new pull factor in school education
the age of 16 years was almost 9 years in Kerala and in the State, and has, in the process, made the system
4 years in India in 2015-16. Kerala has achieved the of school education generally more socially inclusive.
distinction of having the lowest dropout rate of school The Directorate of General Education undertook
students among Indian States. School enrolment and an exercise to calculate the additional enrolment in
retention-levels among pupils of the Scheduled Castes Standards I-X between 2016-17 and 2020-21. The
and Scheduled Tribes are higher in Kerala than in method was as follows: In each standard, the size of a
148 | KERALA DEVELOPMENT REPORT 2021

normal cohort at the beginning of an academic year was Investment in School Education
assumed to be the size of the cohort in the preceding In Kerala, several departments are involved in financing
standard in the previous year. The excess in the size of school. The major departments that finance school
a given standard in a given year over the size of the education in some way are the Departments of General
cohort of the preceding standard in the preceding year Education and Technical Education. Other departments
was assumed to be the additional enrolment in the that spend on schools and school children include the
given standard in the given year. The sum of additional Departments of Sports and Youth Affairs, Labour and
enrolment over all Standards (i.e., I-X) was taken to Labour Welfare, Scheduled Caste and Scheduled Tribe
be the total additional enrolment for the year. By this Development, Minorities Development, Fisheries, and
calculation, more than 6.8 lakh additional pupils were Local Self-Government. After 1996, local bodies have
estimated to have joined government and aided schools come to play a new role in funding and administering
in Kerala between 2017-18 and 2020-21 (Table 10.1) schools.
Table 10.1 Estimated number of additional pupils Investment in school education in Kerala increased
enrolled, Standards I-X, government and aided schools, sharply over the past five years; at the same time, there
Kerala, 2016-17 to 2020-21 in numbers was important variation in the pattern of investment.
Management Total I to X The major source of investment in school education in
From 2016-17 to 2017-18 the Government sector shifted from the line department
Government 59852 to local body plans (Table 10.2). (The decline in
expenditure in Table 10.2, Column 4 in 2019-20 was
Aided 96713
because of resource constraints in the wake of natural
Total 156565 disaster.)
From 2017-18 to 2018-19 Additionally, a large chunk of investment
Government 70644 responsibility in the sector was taken over by KIIFB.
Aided 115327 KIIFB approved 138 projects in which the investment
Total 185971 is Rs 2861 crore in the sphere of school education.
From 2018-19 to 2019-20 KIIFB has allocated Rs 5 crore each to 141 schools to
Government 65215 raise them to the level of “centres of excellence.” It has
Aided 98343 allocated Rs 3 crore each to 395 schools for improving
basic facilities. One crore was allocated to each of 973
Total 163558
schools to develop basic facilities. Special financial
From 2019-20 to 2020-2021*
support was provided to schools that are more than 200
Government 69344 years old (“legacy schools”) and more than 150 years
Aided 106956 old (“heritage schools”). Financial support was also
Total 176300 given to 106 higher secondary schools, 27 vocational
From 2016-17 to 2020-21 higher secondary schools, and 181 lower primary and
Government 265055 upper primary schools for the improvement of their
Aided 417339 infrastructure facilities.
Grand Total 682394 IT Enabled Education
Note: In each standard, the size of a normal cohort at The hi-tech school project provides IT-enabled
the beginning of an academic year was assumed to be education facilities from Standard VIII to XII in 4752
the size of the cohort in the preceding standard in the Government and aided schools in the high school, higher
previous year. The excess in the size of a given standard secondary and vocational higher secondary streams.
in a given year over the size of the cohort of the preceding The scheme provides schools with laptop computers,
standard in the preceding year was assumed to be the audio-visual equipment, and electronic teaching aids.
additional enrolment in the given standard in the given
In all, 13,980 government and aided schools, including
year. The sum of additional enrolment over all Standards
(i.e., I-X) was taken to be the total additional enrolment 9941 primary and upper primary schools, have been
for the year. given broadband connectivity. A sum of Rs 292 crore
Source: Directorate of General Education was allocated in order to set up computer labs in all
*Enrolment data for 2020-21 are from KITE. primary and upper primary schools.
 SCHOOL EDUCATION | 149

Table 10.2 Public investment in school education, Kerala, 2016-17 to 2020-21, in Rs crore
Year State Plan* Local Bodies Plan Total Plan Non-Plan Total (Plan and non-Plan)
1 2 3 4 (2+3) 5 6 (4+5)
2016-17 1282.73 387.95 1670.68 12366.33 14037.01
2017-18 1250.67 540.57 1791.24 14043.95 15835.19
2018-19 1277.37 613.1 1890.47 14069.33 15959.8
2019-20 947.92 459.96 1407.88 14119.39 15527.27
2020-21(BE) 926.75 1023.38 1950.13 12116.95 14067.08
Note: *Includes investment by General Education, Technical Education, and Sports and Youth Affairs departments

“Samagra” e-Resource Portal is a platform to enhance Shradha is a programme to provide additional

communication in the hi-tech classrooms established by academic support to students from standard 3 to
the government. A very wider range of digital resources standard 8. As part of Shradha, special attention was
(comprising 31,031 different individual resources) has given to pupils who needed help with operational
been developed as part of the programme, including mathematical skills.
audio-visual and different types of teaching material. Samagra Shiksha Kerala (SSK) has designed several
KITE’s Open Online course (KOOL), an online learning activities that address learning gaps identified
training programme has been started to give training in National Achievement Survey. These include
to the teachers so that their working hours in schools programmes to enhance capacities in Malayalam
will not be interrupted in any way. “Sametham” portal (Malayalathilakam), English (Hello English), Hindi
is prepared to provide the basic information regarding (Sureeli Hindi), and mathematics (Ganita Vijayam)
the schools of the State to the public. It opens the The Sastrayanam, Sasthrajalakam, and Sastrapadham
doors to view the basic details of schools including its projects are special programmes in the sciences for
physical infrastructure, and governing mechanisms. school pupils. The Ideal Lab Project aims to provide
Details available in “Sametham” include the approved laboratories in schools that meet international
classes in each school, details of students in each class, standards. Biodiversity parks have started functioning
and teachers and non-teaching staff (without personal in 12000 schools in the State.
details) which can be used for generation of various Sitar is a programme for pupils who excel in a
reports at school, educational sub-district, educational particular area of interest, providing them opportunities
district, revenue district, and State levels. to learn in professional educational centres in the State
“Little KITEs” IT Club, the largest student IT and elsewhere in India.
network in the country, has over 1,25,000 members in The “Teacher Transformation Course,” a new
more than 2,060 schools. The project is an initiative by experiment, is a programme for higher secondary
KITE to instil interest and creativity among students, teachers that is being conducted in different colleges
by providing specific training in animation, cyber safety, across the State.
Malayalam computing, hardware, electronics, Internet School Facilities for Children with Disabilities
of Things (IoT) devices, and 3D character modelling. The State has taken special steps to address the needs and
As part of the Little KITES, the digital magazines of requirements of children with physical and intellectual
over 2000 schools have been made available online disabilities
(these be viewed at the “digital magazine” link in the Special teachers training institute
portal www.schoolwiki.in or through the web portal There are about 320 registered institutions in the State
www.dm18.kite.kerala.gov.in) meant for the education of children with intellectual
Enhancement of Academic Excellence disabilities Specially qualified teachers are required for
Textbooks are free for pupils from Standards I to VIII. the functioning of such schools.
Each textbook is printed in three volumes, one for each Barrier-free schools (disabled-friendly
term, in order to reduce the weight of schoolbags. All the infrastructure)
text books for an academic year are distributed to schools The scheme provides assistance to schools to develop
before the closing of the preceding academic year. facilities for children with disabilities.
150 | KERALA DEVELOPMENT REPORT 2021

Autism park rehabilitation, educational assistance to the children of

The main objective is to encourage social participation prisoners and victims, and educational assistance for
by autistic children and to enhance their communication professional courses of children of prisoners are also
abilities. being implemented.
C H Mohammed Koya Memorial State Institute for Interventions in literacy and continuing education
the Mentally Challenged Since 2016, Kerala State Literacy Mission Authority
This imparts special education, training, and (KSLMA) has been involved in the implementation
rehabilitation for children with intellectual disabilities. of programmes in the field of literacy and continuing
National Institute for Speech and Hearing (NISH) education. KSLMA has launched social literacy
NISH was established with the objective of rehabilitating programmes in the field of health, environment,
hearing-impaired persons in the State and providing gender, renaissance of Kerala, the Constitution of
higher education to the hearing impaired. India, and e-learning. KSLMA conducts focussed and
specialised literacy programmes for persons belonging
National Institute of Physical Medicine and
Rehabilitation to Scheduled Caste and Scheduled Tribe, migrant
It is an institute dedicated to providing state-of-the-art workers, and transgender persons. Adult learners are
services – including early identification, intervention, the direct beneficiaries of these programmes. In 2018-
management, rehabilitation and research -- for children 19, around 15,00,000 people benefitted under these
and adults with disabilities. programmes.
The number of people who attended seventh
Other financial support for children with
standard equivalency examination has been increasing
disabilities
for the last two years. KSLMA is making efforts to
“Social security initiatives for marginalised groups
bring a large number of persons back to studies and to
or unorganised groups” is an umbrella scheme with
enrol them in 10th and higher secondary equivalency
different components. Vijayamrutham recognises the
courses (Table 10.3).
educational achievements of children with disabilities;
Learners from the Scheduled Castes and Scheduled
Sahachari promotes inclusive education of persons
Tribes constitute a major portion number of the persons
with disabilities through peer group support and
benefitting from these programmes.
financial assistance to the children with disabilities; and
Vidyajyothi provides financial assistance for uniforms Wiping out Illiteracy
and study materials to students with disabilities and Since Kerala has already achieved universal literacy,
special assistance package to special schools. recently Kerala State Literacy Mission Authority
Educational assistance is given to children with (KSLMA) has entered into new avenues. These include
disabilities in the endosulfan-affected region. The focussed and specialised literacy programmes, including
Government runs programmes for the rehabilitation of programmes on environmental literacy, literacy among
children with autism spectrum disorders under the State persons belonging to Scheduled Castes and Scheduled
initiative on disabilities (Anuyatra). The Snehapoorvam Tribe, literacy for migrant workers, and literacy for
scheme is for the welfare of orphans, single-parented, transgender persons.
and vulnerable children. As part of the scheme, Programmes to wipe out illiteracy (Aksharalaksham),
assistance to aftercare and follow up services and victim for coastal regions (Aksharasagaram), for Scheduled

Table 10.3 Persons who enrolled in higher secondary and 10th equivalency courses, 2018 and 2019, Kerala in
number
Course Year Female Male Transgender Scheduled Scheduled Persons Total
Caste Tribe with
persons persons disabilities
Higher 2018 19,702 14,052 39 9308 1331 288 33,793
secondary 2019 19,792 12,842 36 7779 1220 454 32,670
10th 2018 15,225 21,263 40 8925 1620 354 36,528
2019 15,567 18,460 29 7786 1381 748 34,056
Source: Kerala State Literacy Mission Authority
 HIGHER EDUCATION | 151

Caste persons (Samagra), for Scheduled Tribe persons The second feature is the need for a general improvement
(Navachetana), for migrant workers from other States in the quantity and quality of research in the higher
(Changathi), and for transgender persons (Samanvaya) education system. The academic achievements of
have been implemented. men and women from Kerala elsewhere in the world
School Education and Covid-19 point to the enormous potential for change in higher
The policy response of Governments to the impact of education in Kerala. Success in this regard will have
the pandemic on school education has been a matter very significant positive consequences for the future of
of international concern and discussion. In Kerala, the the State over the next few decades.
expansion of ICT-enabled school education in the three There are 14 State universities functioning in Kerala.
years preceding the pandemic was a factor of enormous Out of these, four universities – Kerala, Mahatma
importance in the State’s response in this field. Gandhi, Calicut and Kannur – are general in nature
The remarkable initiative called “First Bell” of and are offering various courses. Sree Sankaracharya
General Education Department in the field of school University of Sanskrit, Thunchath Ezhuthachan
education during the pandemic received national and Malayalam University, the Cochin University of
international acclaim. Science and Technology, Kerala Agricultural University,
The 2020 academic year for schools began, as in Kerala Veterinary and Animal Science University,
previous years, on June 1. Classes under the First Bell Kerala University of Health Sciences, Kerala University
programme were telecast live through the KITE Victers of Fisheries and Ocean Studies, Kerala Technological
educational channel and were uploaded in the YouTube University offer more specialised courses in specified
channel (www.youtube.com/itsvicters) for offline and subject areas. Besides these, the National University
deferred viewing. As a result of the hi-tech project in of Advanced Legal Studies (NUALS) and Central
schools, over 1.2 lakh laptops and 70,000 projectors University of Kerala, Kasaragod, are also universities
along with other ICT equipment were made available that function in the State.
for students who did not have a cable connection or
Arts and Science Colleges
television in their homes. Initially there were some
students who did not have access to these classes due There are 229 arts and science colleges in the State,
to lack of equipment, but this problem was tackled 163 private aided colleges and 66 government colleges.
socially by means of various-levels of interventions, Apart from these, various unaided and self-financing
particularly involving the distribution of televisions arts and science colleges affiliated to general universities
and smart phones. also function in the State.
Viewership for specific classes exceeded 40 lakh. The total number of students enrolled in various
Classes were viewed in India and by hundreds of people arts and science colleges (excluding unaided colleges)
in the Gulf region, the United States, and Europe. In in the four general universities in Kerala in 2019-20 is
addition to classes in English and Malayalam, KITE 3.32 lakh. Of this 2.25 lakh (67.7 per cent) are women
organised classes in Kannada and Tamil for children in students (Table 10.4).
Kannada- and Tamil-medium schools. KITE has been The number of students belonging to the Scheduled
able to continue digital classes for all standards in a pre- Castes (SC) in degree and post graduate courses in the
set time schedule. State is 42,486, that is, 12.79 per cent of all students
Higher Education in 2019-20. The number of students belonging to the
Improving the quality of higher education is a necessary Scheduled Tribes (ST) in degree and post graduate
condition for the success of the next stage of Kerala’s course in the State is 7,311 or 2.2 per cent of all
social and economic development. Kerala has received students in 2019-20.
international recognition for its advances in education, Engineering Colleges
particularly in universalising and improving the quality There are 177 engineering colleges in the State with a
of school education in the State. Less noted are the sanctioned intake of 49,136 in 2019-20. Of these, 165
significant advance in higher education, the broad- (93.2 per cent) are self-financing colleges (unaided), 9
basing of social entry into the higher education system, (5.1 per cent) are government colleges, and 3 (1.7 per
and the rise of the gross enrolment ratio in higher cent) are private aided colleges. The sanctioned intake
education in the State. of government colleges in 2020 was 3,430 (7 per cent),
The State must seek ways of continually improving aided colleges 1,844 (3.75 per cent), and unaided
the quality of syllabi and pedagogy in higher education. colleges 43,862 (89.3 per cent).
152 | KERALA DEVELOPMENT REPORT 2021

Table 10.4 Enrolment of students in government and aided arts and science colleges in Kerala, 2019-20 in
numbers
Course Total Women Men Percentage of women in
total students
B.A. 1,37,576 88,768 48,808 64.5
B.Sc. 1,05,545 78,908 26,637 74.8
B.Com. 46,403 29,472 16,931 63.5
Total 2,89,524 1,97,148 92,376 68.1
M.A. 15,924 10,167 5,757 63.8
MSc. 19,971 12,757 7,214 63.9
M. Com. 6,874 4,828 2,046 70.2
Total 42,769 27,752 15,017 64.9
Grand Total 3,32,293 2,24,900 1,07,393 67.7
Source: Directorate of Collegiate Education, Kerala

Table 10.5 Proportion of students belonging to the Technological University are in the final stages.
Scheduled Castes and Scheduled Tribes in higher An exam comptroller office and a supervisory
education, Kerala, 2019-20 development centre, State Institute of Technical
Course SC ST Others Teachers’ Training and Research (SITTTR) functions
(in %) (in %) (in %) under the technical education department. State
Board of Technical Education was reorganised for the
B.A 10.39 2.25 87.09 comprehensive development of employment-oriented
B.Sc 15.47 0.97 83.57 education in the State. In 2019, the Higher Education
B.Com 13.35 1.85 84.8 Department appointed a committee with Dr B Ekbal,
Total 12.72 1.85 85.44 Member, State Planning Board, as Chairperson to
M.A 15.77 6.02 78.22 study and submit a report regarding the possibility
of bringing  the engineering and polytechnic colleges
M. Sc 11.26 3.33 85.41
now being managed by the LBS Centre for Science
M.Com 13.30 4.90 81.8 and Technology, Centre for Continuing Education
Total 13.26 4.58 82.15 Kerala (CCEK), Centre for Professional and Advanced
Grand Total 12.79 2.20 85.01 Studies (CPAS), and Institute of Human Resources
Source: Directorate of Collegiate Education, Kerala Development (IHRD) under one umbrella.
At undergraduate or postgraduate-level, the New posts and recruitment and courses
proportion of women to all students in government More than 1,000 teaching posts have been created and
and aided colleges was 37.8 per cent in 2019-20. 1356 a number of innovative courses have been started in
students were admitted in Government and aided Government and aided colleges. Seventeen courses on
engineering colleges for postgraduate courses in 2019- new technologies were started in engineering colleges at
20. Women constitute 64 per cent of all postgraduate the undergraduate and postgraduate-levels.
students in government and aided engineering colleges. Infrastructural development
Major Initiatives and Achievements in 13th Development work of a project value of Rs 570 crores
Five-Year Plan is being carried out in colleges with financial assistance
New institutions and institutional development from Kerala Infrastructure Investment Fund Board
Sree Narayana Guru Open University, which will impart (KIIFB). Infrastructural work in institutions under the
higher education through distance learning and online, department of a total project value of Rs 70 crore was
was established. A digital university, Kerala University inaugurated on October 27, 2020. Construction of
of Digital Sciences, Innovations and Technology an air strip for the training of NCC cadets has been
(formerly IIITM-K) has also been established. Land completed. KIIFB has provided funds to colleges as
acquisition for the Malayalam University and Kerala follows – 48 colleges were given a grant of Rs 8.5 crore
 HIGHER EDUCATION | 153

Table 10.6 B.tech result in engineering colleges, Kerala, 2020 in number

Management Boys Girls Total
Regist- Passed Pass Regist- Passed Pass Regist- Passed Pass
ered Students Percen- ered Stud- Percen- ered Stud- Percen-
Students tage Students ents tage Students ents tage
Government 2,088 1,259 60.3 1,252 1,005 80.27 3,340 2,264 67.78
Private aided 1,270 844 66.46 594 489 82.32 1,864 1,333 71.51
Govt. self- 2,725 1,159 42.55 2,423 1,636 67.52 5,148 2,795 54.3
financing
Private self- 12,645 4,499 35.59 8,871 5,512 62.21 21,516 10,011 46.56
financing
Total 18,728 7,761 41.45 13,140 8,642 65.82 31,868 16,403 51.50
Source: Kerala Technological University, 2020

each, 5 heritage colleges were provided Rs 30 crore Scholarships

each, and 12 colleges were provided Rs 10 crore each. Various scholarships at postgraduate and undergraduate-
The construction works of 45 buildings are in progress levels are being given to improve the quality of
as part of the basic infrastructure development. More education and to ensure equity in higher education.
than 30 buildings were completed between June 2016 Central-State sector scholarships of 13 types are given
and November 2020 and handed over to the respective to students. Various scholarships including post matric
institutions. scholarships (65,626), District Merit Scholarship
Rashtriya Uchchatar Shiksha Abhiyaan (RUSA) fund (20,409) and Kerala State Suvarna Jubilee Scholarship
RUSA fund for the infrastructure development of (4473) were given in 2019-20. Apart from these,
colleges of Rs 2 crore was made available to each of “Aspire” scholarship, scholarships separately for social
121 institutions in the State, including 15 Government sciences, literature, music, arts, and performing arts are
colleges and 106 aided colleges. A university and college also being given. Special merit scholarships are given by
teachers collective, the RUSA Research Network Group the Higher Education Council to undergraduate degree
(RRNG), has been formed to achieve excellence in the and post-graduate students in arts and science courses.
field of research and also to gain access to national and Academic enhancement programmes
international funds for research. The department conducts the Scholar Support Programme,
Jeevani Walk with Scholars and FLAIR (Fostering Linkages for
A counselling project called “Jeevani” has been Academic Innovation and Research) for ensuring academic
established to address the mental health needs of the excellence. A Centre for Excellence project has been
students across Government colleges in Kerala. The initiated for converting research centres and institutes of
“Jeevani-College Mental Awareness Programme” was higher education into centres of excellence.
implemented in 67 arts and science colleges in 2019- “Lead” induction training
20 to provide psychological assistance to students. Student union chairpersons in universities were sent
Online programmes and services for training in foreign universities under the Lead
The Collegiate Education Department implemented Induction Training Programme.
three study series – Beyond Syllabi, Malayala Sahitya Research and development in engineering colleges
Yatra, and Winglish under the Online Resource The following research and development centres or
Initiatives of Collegiate Education (ORICE) through multidisciplinary research centres were established.
the Meghanad Saha Centre for Content Development 1. Reusable Building Systems at the Rajiv Gandhi
Studio. In Government colleges, high-speed stable Institute of Technology, Kottayam
internet services were provided by installing BSNL 2. Centre for Bamboo Technology at Barton Hill
single optical fibre network. Most services offered by Engineering College
universities, including admissions and certifications, 3. Transportation research centre and an electrical
were made online; entrance exams to professional vehicle testing lab at Government Engineering
courses other than engineering were conducted online. College, Trivandrum
154 | KERALA DEVELOPMENT REPORT 2021

4. Robotics and artificial intelligence nodal centre at (CSPs), have conceived as an industry-led public
the Government Engineering College, Thrissur private partnership model of skill training. They have
5. Centre for excellence in systems, rural technology been developed as multi-skill training centres equipped
development centre, and energy and environment, with state-of-the-art training facilities in various
at Government Engineering College, Kannur locations across the State. CSPs operate on a hub and
6. Preliminary work for the launching of CET-SAT spoke model and connect with academic institutions,
satellites are in progress. vocational training institutions, and local industry to
7. A product design development centre and a high foster a skill development ecosystem. A total of 16
performance computing facility were opened in CSPs are to be implemented in the State, of which nine
College of Engineering Thiruvanathapuram, and the are already operational, while construction work in the
facilities are open to students from all engineering remaining seven CSPs are in the initial phase.
colleges. National Qualification Register (NQR)
e-Journal consortium ASAP has acquired the expertise and competence
The consortium promotes free access to e-journals to develop skill qualifications as per National Skills
across institutions in the country through Information Qualification Framework (NSQF). Over the last two
and Library Network Centres. Kerala State Higher years, ASAP has developed five NSQF Qualifications
Education Council is the nodal agency in the State in that are now available in the National Qualifications
this regard and all Universities in the State participate. Register (NQR). With this ASAP has entered the
KALNET (Kerala Academic Libraries Network) domain of skill course curriculum development. ASAP
KALNET is a network of libraries attached to higher qualifications in the NQR are:
education institutions in the State that enables the 1. Communicative English Trainer (NSQF Level 6)
sharing of resources among them. 2. Junior Correspondent Course (NSQF Level 5)
Advanced skill development in technical institutions 3. Assistant Offset Printing Operator (NSQF Level 4)
To bridge the skill gap in engineering and polytechnic 4. Air Cargo Management Executive (NQF Level 6)
institutions and to connect students with future 5. Certificate Course in Hi Tech Farm Management
technologies, ASAP set up Advanced Skill Development (NSQF Level 6)
Centres (ASDCs) in 66 engineering colleges and 45 In 2019, four more qualifications were developed.
polytechnics across Kerala. ASDCs partner with industry The qualifications have obtained approval of the NSQF
leaders and offer advanced courses in, among other and they are as follows;
subjects, artificial intelligence and machine learning, 1. 3D Prototyping Manager-NSQF-level 6
and robotic process automation. Women students have 2. Manager Pre press-NSQF-level 6
enrolled in large numbers for these advanced courses. 3. Binding Machine Operator-NSQF-level 4
9180 students enrolled in ASAP-level 2 courses (ASDC 4. AI-Machine Learning Developer-NSQF-level 7
courses), and 96 students were placed in artificial She Skills
intelligence and machine learning courses. “She Skills” is an exclusive training programme for
Earn while learning – internship programme for women above 15 years of age for a period of three
graduate students months. Improving living standards by helping women,
State Government entrusted ASAP with the task of mostly home makers, to learn marketable skills, and
operating State Internship Portal to offer graduate promoting entrepreneurship to become economically
students an opportunity to work while undergoing self-sufficient is the mandate of this special drive.
a conventional educational programme. The State She Skills 2019 offered 23 courses in 11 job sectors.
Initiative on Internship for Employability Enhancement Placement grooming, softs-skills training are salient
project is an online web platform designed to provide features of the programme. The programme had 5529
a platform for students, academics, and industries women enrolled in 2019-20.
to meet at the same point. A salient feature of the Professional Student Summits
internship portal is that it connects students not only Professional student summits were organised to provide
with industries but also with State departments that opportunities for professional students to interact
involve technical work. with experts in their respective fields and to exchange
Community Skill Parks ideas. Students Leaders’ Conclaves were organised
ASAP’s flagship initiative, Community Skill Parks to allow students to express their ideas on building a
 HEALTH | 155

new Kerala and to interact with the Chief Minister. the use of information technology and data resources
“For The Students” – an online complaint resolution on campus.
centre to redress students’ complaints about education 6. Equity
centres – was established. Rest centres for women The issues to be covered in this category include ways
students equipped with modern facilities were built in and means of ensuring and deepening the socially
Government colleges. inclusive character of higher education and ensuring
Moving to the Future regional balance in higher education.
An important feature of the State Budget for 2021-22 7. Microplanning
is a new emphasis on higher education. The new thrust The issues to be covered in this category involve drawing
involves new investments in the expansion of the higher up specific plans and programmes for individual
education sector, in new faculty positions, new centres universities, colleges, and related institutions as the
of excellence, postdoctoral fellowships, infrastructure need arises.
development, and modernisation.
The international conference and consultation title Kerala's Health: Some Perspectives
“Kerala Looks Ahead,” which was organised by the Kerala continues to attract international attention
State Planning Board in February 2010, suggested for its achievements in the sphere of the health of its
certain important areas in which the State needs expert people. It continues to lead the country in respect
opinion to help formulate the way ahead for higher of indicators such as life expectancy at birth, infant
education in Kerala. These areas include: mortality, maternal mortality, and the ratio of males
to females in the population. All important national
1. Curricular reform and innovation metrics place Kerala at the top of the table with respect
The issues to be covered in this category include: to health. In NITI Aayog’s Performance of States in
capacity-building in individual disciplines/subjects; Health Outcomes Index in June 2019, Kerala, with
the formulation of strategies for undergraduate and an overall score of 74.01, ranks at the top in terms of
post-graduate education and academic research; course overall performance.
design; planning for departments of excellence and International trends in the era of neoliberalisation
centres of excellence; sharing experiences with national have been towards insurance (rather than universal
experts on centres of excellence; and teacher training access) and privatisation (rather than strengthening
and development. the public sector in health). In direct contrast, during
2. Institutional reform and innovation the 13th Five-Year Plan, the Government of Kerala
The issues to be covered in this category involve learning emphasised and strengthened the public sector in
from successful examples in order to develop preventive, curative, and palliative health care. Public
administrative regulations that are flexible, transparent, intervention has consistently been designed to make
and responsive to the requirements of teachers and the best possible health care in public sphere. It has
students. been designed to transform the quality of public sector
3. Online course development in health to improve access and affordability and to
Explore new  technologies of instruction, such as expand physical facilities for health and sanitation.
MOOCs (Massive Open Online Courses) which can In the current era, the State has to tackle problems
best be introduced in colleges and universities and of non-communicable diseases and of the resurgence of
certain infectious diseases, with problems of large scale
set up inter-university groups for developing online
privatisation of health sector and with the health of the
courses.
elderly. State policy is also paying increasing attention
4.  Networks for teaching, research, and student to issues of mental health, substance abuse, adolescent
exchange health, and the widespread phenomenon of road traffic
Kerala looks forward to substantially expanding national accidents. The State has to take special care of the health
and transnational networks for teaching, research, and of specific sections of people, including people of the
student exchange. Scheduled Caste and Scheduled Tribes, fish workers,
5. Library development, IT on campus plantation workers, and others.
Kerala needs to learn more about (1) ways in which Initiatives under the 13th Five-Year Plan
libraries have been transformed; (2) sharing e-resources In 1996, the Government of Kerala initiated a bold
between institutions on different campuses; and (iii) policy move, bringing health institutions such as
156 | KERALA DEVELOPMENT REPORT 2021

Table 10.7 Demographic and health profiles, Kerala and India

Indicators Male/Female Kerala India
Infant Mortality Rate # 7 32
Male 9 32
Female 5 33
Maternal Mortality Ratio** 43 113
Expectancy of life at Birth*** 75.3 69.4
Male 72.5 68.2
Female 77.9 70.7
Percentage of deaths receiving medical attention* 95.5 80.8
Percentage of live births by type of medical 99.9 92.8
attention received by mothers*
Note: **Special Bulletin on MMR 2016-18
***SRS Life Table 2014-18
Source: # SRS 2020 May/* SRS Statistical Report 2018

Primary Health Centres (PHC) and Community Health protocol based treatment guidelines in the management
Centres (CHC) under local self government institutions of patients in hospitals.
(LSGI). The expectation was that this would result in Under the Mission, Primary Health Centres (PHCs)
more accountable and efficient health institutions. It are being converted to Family Health Centres (FHCs),
was also expected that public health, health promotion, that are, capable of meeting the healthcare needs of all
and inter-sectoral initiatives in health would thrive through personalised service packages and to address
through planned interventions by local bodies. In the preventive, promotive, curative, palliative, and
practice, many institutions focused on improving rehabilitative health care needs of the local community.
health care facilities that were directly demanded by the The facilities provided include web-based appointment
population; this improved infrastructure and service system, patient reception, and registration, electronic
in primary and secondary healthcare institutions and display boards for each consultant, the facility for patient
widened healthcare delivery. to wait for their turn, improved amenities in waiting
The approach of the 13th Five-Year Plan was to areas, and location maps and signages. The Mission
provide the best possible preventive, curative, and includes the improvement of clinical management
palliative care in the public sector by improving the by ensuring guideline-based case management and
infrastructure and quality of services. The Approach monitoring the quality of services. The highlight of
Paper envisages the successful implementation of the this transformation is that local governments play the
Aardram Mission. Expansion of insurance coverage, crucial role in the functioning of Family Health Centres.
achievement of total sanitation, waste disposal and Availability of drugs has improved at the primary-level,
and the Government has been recruiting manpower
mosquito eradication, are some of the other outcomes
in health despite the financial setbacks induced by
that were priority in order to achieve a healthy life for
successive years of natural disasters and the onset of
all segments of the population in the State. In 2016, the
the Covid-19 pandemic. Supportive institutions such
Government of Kerala formed a committee with  Dr.
as the Kerala Institute of Virology have been set up to
B. Ekbal, Member, State Planning Board, as Chair to
improve capabilities in the public sector to deal with
formulate a new Health Policy for Kerala.15
health emergencies.
Achievements under Aardram Mission Aardram Mission is implemented in three stages
The major objectives of the Aardram Mission are: in Government medical college hospitals, district
(i) patient friendly transformation of the outpatient hospitals, taluk hospitals and primary health centres.
(OP) wings of medical college hospitals and other The conversion of PHCs as Family Health Centres
Government hospitals, (ii) standardisation of the with adequate supply of drugs and assured treatment
district and taluk-level hospitals, (iii) developing the protocols ensures better health among people and
PHCs into FHCs in a phased manner and (iv) ensuring enhances their trust in the public health system.
https://kerala.gov.in/documents/10180/17220f0b-b9d6-4c6a-8754-3aa47aa3fe01
15
 HEALTH | 157

i. PHCs and CHCs as Family Health Centres have been set up in district and taluk hospitals with
In the first phase (2017-18), the Government identified funding from Kerala Infrastructure Investment Fund
170 PHCs in 14 districts for developing into FHCs. Board (KIIFB). For this purpose, an amount of Rs 150
Of these, 162 FHCs have been made functional and crore has been provided to start 44 dialysis centres and
the rest are progressing. In the second phase (2018-19), 10 cath labs and CCUs. 98 per cent works of dialysis
504 PHCs were selected for developing into FHCs; centres and 80 per cent works of cath labs and CCUs
315 have been completed and work in the other PHCs have already been completed while the balance works
is at different stages. Transformation of the PHCs into are expected to be completed by July 2021.
FHCs has evoked encouraging community response. In Table 10.8 Setting up of cath labs and dialysis units
the third phase, 212 PHCs were selected for developing through KIIFB
into FHCs using funds under the National Health
Mission. In addition to this, 76 Community Health Project Dialysis Cath lab
Centres (CHCs) will be converted into Block Family centres and CCU
Health Centres. Total outlay 69 80
(in Rs crore)
ii. District hospitals: people-friendly outpatient
facilities No. of centres 44 10
The Aardram Mission aims to transform all district Started functioning 41 8
hospitals into institutions that provide all basic specialty Completed 2 0
services and essential multi-specialty services. The Progressing 1 2
specialty services include new-born care, psychiatric Source: Directorate of Health Services, Government of
services, physical medicine and rehabilitation services, Kerala
accident and trauma services, dialysis services, and anti- iv. Transformation of Medical Colleges
retroviral therapy. The Aardram Mission, as mentioned, aims to provide
Medical college hospitals and district hospitals are patient-friendly and quality care services at the outpatient
large institutions providing outpatient care for a large wing of medical colleges. As a first step, medical
number of patients every day, and a patient-friendly colleges at Thiruvananthapuram, Paripally, Alappuzha,
transformation of the outpatient wings of these Kottayam, Ernakulam, Thrissur, Malappuram and
hospitals was taken as a priority item under Aardram Kozhikode were selected for the implementation of
Mission. The facilities that have been transformed the programme to transform outpatient departments.
include outpatient registration counters, patient Work in 8 Medical Colleges has been completed.
waiting areas, seating facilities, drinking water facilities,
Human Resource Development in the Health Sector
toilet facilities, public address systems, information
In order to implement the Mission activities, additional
education and communication arrangements and
posts of one medical officer, two staff nurses and one
signage systems. Support of patient-care coordinators
lab technician each were created in each FHC. These
for larger institutions will also be provided. These
posts were filled in order to ensure that there would be
changes are being implemented in Government medical
a minimum of 3 doctors and 4 nurses in each FHC. In
college hospitals and district hospitals. the first phase of the Aardram Mission, 830 posts were
There are a total of 18 General hospitals and 18 created; these include medical officers (170), staff nurses
District Hospitals in the State. Of these, 17 institutions (340), pharmacists (150) and lab technicians (170). In
have been selected for OP transformation (one hospital the second phase, 1000 posts were created: medical
each in 11 districts and two hospitals from Kannur, officers (400), staff nurses (400), and pharmacists and
Kasaragod and Wayanad districts). Construction work lab technicians (200). Another 1217 posts have been
in 9 hospitals is complete and is progressing in other created subsequently.
hospitals. Of the total 86 taluk hospitals, 75 have been Service delivery in these institutions in terms of clinical
selected for standardisation in a phased manner. care and public health activities have been augmented
iii. Speciality services in district-level hospital and outpatient care is provided up to 6 pm. The e-Health
through KIIFB project is expected to further develop individual patient
As a part of enhancing the district-level hospitals as care plans and family health plans based on family health
institutions which provide essential specialty services, register data. Ward and panchayat-level health plans
cath labs, dialysis centres and cardiac care units (CCUs) that focus on preventive, promotive, and rehabilitative
158 | KERALA DEVELOPMENT REPORT 2021

Table 10.9 Status of infrastructural development in hospitals under Aardram Mission in number
Type of hospitals Phases Total AS issued Work Work
institutions completed progressing
PHCs into FHCs First phase 170 170 163 7
Second phase 504 432 315 117
Third phase 212 212 0 212
Total 886 814 478 336
OPs of district-level First phase 8 8 1 7
hospitals Second phase 18 18 0 0
Third phase 10 10 0 0
Total 36 36 1 7
Medical colleges First phase 8 8 8 0
Source: Directorate of Health Services, Government of Kerala
Note: AS is administrative sanction.
Table 10.10 Additional posts created in health based training, and skill training.
services and under Aardram Mission, 2016 to January Aswasam clinics. Aswasam depression management
15, 2021 in number as primary care has been started in 149 Family
Post Total Health Aardram Health Centres across the State. Health workers and
Services Mission staff nurses were trained in screening using Patient
Doctors//Medical 982 836 Health Questionnaire 9 (PHQ9) and psychological
Officers first aid, while doctors were trained in diagnosis and
Nurses 1042 937 management of depression. Referral Protocols for
Pharmacist 189 180 cases to be seen by District Mental Health Programme
Lab Technician 677 460 (DMHP) psychiatrists are included in the programme.
Others 470 308 The number of persons screened in 2019-20 was 25,587
of which the number of positive cases was 4901.
Total* 3360 2721
Note: *With the 1217 posts created recently, the total COPD Prevention and Control Programme ─
number of posts created during the 5 year period adds SWAAS. A Chronic Obstructive Pulmonary Disease
up to 4577. (COPD) control programme called SWAAS is being
health care services will be developed in association with implemented from the Family Health Centre-level
panchayats and with public participation. A new health upwards as part of the Aardram Mission.
volunteer system called Arogyasena was launched as part Aardram People’s Health Campaign. The Aardram
of the Aardram Mission. Public health interventions People’s Health Campaign was launched on November
focusing on the re-organisation of the primary health 18, 2019. Following the State-level launch, the
care system based on the epidemiological needs of campaign began at the district and local-levels
Kerala society especially with respect to the challenge throughout the State. The State-wide campaign is being
of non-communicable diseases constitute the focus of implemented locally under the leadership of respective
the programme. Treatment guidelines for 53 common LSG and Heath and Family Welfare Department with
medical conditions to be managed at PHC-level have active involvement of Missions, line departments and
been prepared and made available to Medical Officers. agencies, NGOs, and Community Based Organisations.
Training status. Revised job responsibilities and FHC Local-level implementation of the campaign starts from
transformation guidelines have been prepared and the ward-level under the leadership of an expanded
module-based training programmes have begun for Ward Health Sanitation and Nutrition Committee
major categories of staff. The State Health Systems (WHSNC). At the panchayat/block/urban area-level
Resource Centre (SHSRC), Kerala, has been entrusted it is under the leadership of an expanded Arogya
with the responsibility of training. Training in three Jagratha Committee. District-level implementation is
spheres has begun: team-building training, concept- through the coordination of LSG-level committees, the
 HEALTH | 159

existing District Health and Family Welfare Society, Investment during the 13th Five-Year Plan
and the District Aardram Task Force headed by District Studies have pointed out that the increase in per capita
Panchayat President, District Collector and DMO out-of-pocket health expenditure between 1987 and
(Health). The Minister in charge of the district, MPs 2004 was more than double the increase in the cost of
and MLAs of the districts are the chief patrons of the living index. Globalisation and privatisation challenge
district-level committees. At the State-level, leadership the foundations of a health system care built on low-cost
and guidance for the campaign is given by the Nava health care and motivated by principles of distributive
Kerala Karma Padhati Committee chaired by the Chief justice. In order to address this issue, funds have come
Minister. The State Level Implementation Committee to the health sector from the Plan and KIIFB.
functions under the leadership of the Minister for Plan and non-Plan expenditure on health have
Health (Chairperson) and Principal Secretary, Health increased over these five years. In 2020-21, the
(Vice Chairperson). The following are the five areas of Government spent more than originally estimated
focus in the people’s campaign: in the budget because of expenditure caused by the
1) Preventive and promotive health and improvement pandemic.
in health-seeking behaviour. The steady increase of budgetary investment is
2) Healthy food shown in Figure 10.1.
3) Exercise and physical activity Investment through Kerala Infrastructure
4) Mental health and de-addiction (against alcohol, Investment Fund Board (KIIFB)
smoking and substance abuse) KIIFB, which was launched for financing infrastructure
5) Cleanliness and waste disposal projects in the State, is instrumental in setting up a wide
e-Health Project. The e-Health Project aims to link range of infrastructure development projects under
health institutions all over Kerala. The project aims to health sector since 2016. Projects with an amount of
build a database of individual medical records easily Rs 4240.12 crore have been approved by KIIFB and
accessible to the medical practitioners. It includes out of these, projects with an amount of Rs 1503.42
unique patient identification in different settings and the crore have already been started. Specialities such as cath
exchange of data between different health care delivery labs and dialysis centres in district and taluk hospitals
units at primary, secondary and tertiary-level across the could be materialised with KIIFB fund.
State. Health records can help avoid repeated medical The projects approved for financing are currently
tests and reduce out of pocket expenses. The scheme under various stages of execution. Some of the major
is being implemented in all the fourteen districts of projects of KIIFB in the health sector are listed below:
Kerala, with Thiruvananthapuram as the pilot district. 1. Government Medical College,
The e-Health programme has been completed in 140 Thiruvananthapuram
hospitals, of which 63 are working as paperless hospitals. The first phase development is for improving external
NITI Aayog has acclaimed the e-health project of the infrastructure, including the development of internal
State. Kerala is the only State in the country where a roads, construction of a multilevel parking system,
database covering 2,59,21,080 people has been collected traffic regulations, junction improvements, and
and stored as electronic records. measures for pedestrian access and safety. Rs 58.37 crore

Table 10.11 Investment in health and family welfare, Kerala in Rs crore

Year Revenue expenditure Capital expenditure Total expenditure
Plan Non Total Plan Non Total Plan Non Plan Total
Plan Plan
2017-18 1593.55 4580.85 6174.4 269.4 38 307.39 1862.95 4618.85 6481.79
2018-19 1640.16 5206.89 6847.05 222.6 28.91 251.51 1862.76 5235.8 7098.56
2019-20 2024.97 5269.62 7294.58 221.64 22.59 244.23 2246.61 5292.21 7538.81
2020-21 (RE) 2476.33 5289.98 7766.62 138.53 65.68 204.19 2614.86 5355.66 7970.81
2021-22 (BE) 2261.72 6283.21 8544.94 151.42 85.18 236.6 2413.14 6368.39 8781.54
Source: Budget in Brief, Government of Kerala
160 | KERALA DEVELOPMENT REPORT 2021

Figure 10.1 Investment in health in the 13th Five-Year Plan in Rs crore

Source: Budget in Brief, Government of Kerala
has been approved for this purpose. The project under units, essential pharmaceuticals and supplies, referral
Phase II that has been proposed for the development of support and resources. There are also space constraints
Government Medical College, Thiruvananthapuram, for many departments in the hospital. The scope of
includes construction of an operation theatre cum work includes construction of new radiotherapy block
surgical ward block, paediatrics block, and academic renovation of main outpatient (OP) building and site
block for a medical laboratory technology block at a development works. The renovation works mainly
total estimated cost of Rs 194.33 crore. INKEL Ltd is includes demolition of existing partition wall, repair of
the SPV designated for executing the project. toilets, providing new partition wall, provision of false
2. Malabar Cancer Centre, Thalassery ceiling, orthopaedic OP, and roofing for open terrace
The Phase-I project is for the upgradation of MCC as courtyards. Site development works include rainwater
a Post Graduate Institute of Oncology Sciences and tank, interlocked paved parking, covered parking,
Research which shall provide infrastructure of state of drain, and retaining wall. The Phase-I works were
art facilities with high quality teaching. The existing approved for Rs 75.18 crore and M/s BSBL is the SPV
hospital lacks modern diagnostics and therapeutic for the project. KIIFB has also approved the project
equipment, proper emergency service and intensive care submitted by M/s WAPCOS Ltd (SPV) for its Phase-

Table 10.12 Status of projects in health sector funded by Kerala Infrastructure Investment Fund
Board in Rs crore
KIIFB Approved Projects No. of projects approved 57
Approved amount (in Rs crore) Rs 4240.12
KIIFB Tendered Projects No. of projects tendered 28
Approved amount of the tendered projects (in Rs crore) Rs 2471.65
Tendered amount (in Rs crore) Rs 1703.59
KIIFB Started or No. of projects started/awarded 24
Awarded Projects Approved amount of the projects awarded (in Rs crore) Rs 2049.63
Work contract amount (in Rs crore) Rs 1503.42
Source: KIIFB
 HEALTH | 161

II components like construction of 14 floor hospital Table 10.13 Number of hospital beds, 2016 to 2020
building and infrastructure. The total estimated cost of
Year Modern medicine Ayurveda
Phase II is Rs 345 crore.
2016 50,751 3064
3. Cancer Hospital and Research Centre, Kochi
Primarily, cancer treatment facilities are available largely 2017 50,783 3064
in the tertiary hospitals. Decentralisation of the cancer 2018 51,197 3074
treatment from tertiary hospitals to district/general 2019 51,331 3154
hospitals will promote early detection of cancer and
cure a large number of cases. Every year 35,000 new 2020 51,567 3154
cases of cancer are detected in Kerala. The proposed Source: Economic Review, various years, Kerala State
project at Kochi would reduce the burden on Regional Planning Board
Cancer Centre (RCC), Thiruvananthapuram. The inpatients and outpatients during this period. As
project shall come up in the 12 acre campus in phases. shown in Figure 10.2, there was an increase of nearly 3
The first phase shall have four blocks: medical block, crore patients in modern medicine hospitals from 2016
administration block, services block and pain and to 2019 (the number went down in 2020 on account
palliative care block. The total estimate cost approved of the pandemic). Visits to ayurveda and homeo
by KIIFB for the project is Rs 379.73 crore and M/s institutions increased in 2020.
INKEL Ltd is the SPV. Nipah outbreak in 2018 and 2019
4. Government Medical College, Thrissur Kerala experienced a first ever outbreak of Nipah
The project approved by KIIFB includes the virus disease, an emerging zoonotic disease marked
construction of a super-specialty block, and the by high fatality rates. The outbreak response activities
development of ancillary and supporitng facilities undertaken by the health system contained the
(including water supply, water conservation and waste outbreak in 10 days (16 lives were lost). All contacts
water management, power supply, and solid waste of the confirmed/probable cases including the health
management facilities). The estimated cost of the care providers of various health facilities were listed out,
project is Rs 153.25 crore. tracked for their health status daily, samples were tested
5. International Research Institute for Ayurveda in probable cases, and the contacts were continuously
The project is intended to promote research work monitored through the incubation period. Thus, about
linking ayurveda with biotechnology and to ensure 3500+ contacts spread over the two affected districts
global standards for ayurvedic medicines. Phase I of were contacted by health staff and volunteers. Kerala’s
the project includes the construction of a new 100- historic response was subsequently commended
bed hospital building, a manuscript building, and a internationally, for example, by the Baltimore Institute
nursery building. The total estimated cost of Phase I is of Human Virology in July 2018.
Rs 153.25 crore. Kerala floods
People’s Access to Public-Sector Health Facilities Kerala experienced another public health challenge in
One of the objectives of Aardram Mission is to transform the form of unusual floods that hit almost all districts
the public health sector, making it patient friendly and of the State in July-August 2018.
affordable for the poor and ordinary citizens of our An incident command centre and control rooms
State. The Government has designed various strategies were set up in the Directorate of Health Services and
to provide an effective healthcare system to the people all district headquarters. The control room contact
in the public domain with better infrastructure and numbers were publicised. State and District Disaster
quality services. One of the direct outcomes of the Management system were activated from August 9,
Government’s efforts through Aardram Mission is 2018 onwards in the northern districts and from
that people’s dependence on Government hospitals August 14, 2018 onwards in other districts. The
has increased, mainly because the facilities in Family State Rapid Response Team convened an emergency
Health Centres and in district-level hospitals have been meeting to draft guidelines for control measures. A
improved. Table 10.13 shows the increase in hospital representative of Regional Director of Health (RDO-
beds between 2016 and 2020. Thiruvananthapuram) participated and contributed
Increased reliance of people on Government to the formulation of the guidelines. At State Control
hospitals is reflected in the increased number of Room, separate cells were designated for logistic
162 | KERALA DEVELOPMENT REPORT 2021

Figure 10.2 Inpatients and Outpatients, Kerala, 2016-2020 in numbers

Source: Economic Review, various years

management, media management, and data management. the safe disposal of carcasses with help of officers of the
Available department staff were designated to provide Animal Husbandry Department. Steps were also taken to
24-hour service in these control rooms, supplemented disseminate correct information and status reports on the
by deployment from non-affected regions. These centres impact of the flood to various media on a regular basis.
monitored the situation twice daily and reported to Covid-19 Pandemic
the State and Central Governments. Guidelines for the Kerala reported the first case of Covid-19 in the
prevention and control of communicable diseases and for country, less than a month after the disease was first
the systematic functioning of relief camps were formulated notified by the World Health Organisation. The State
and circulated. A health inspector/multipurpose health Government, which had learned from the Nipah
worker was entrusted to supervise the health and experience, responded by activating its public health
emergency response system. Kerala quickly established a
sanitation part of all relief camps. Local Accredited Social
surveillance system, enhanced its existing infrastructure
Health Activists (ASHA), Anganwadi Workers (AWW) capacity, and trained its entire workforce to tackle
and Kudumbasree volunteers and members of Village the new challenge. Kerala was the first State in India
Health Sanitation and Nutrition Committee (VHSNCs) to start RT-PCR testing in its laboratories. Through a
worked full time in relief camps. Advisories in English and systematic implementation of a Test, Trace and Treat
Malayalam regarding preventive health were formulated programme, the State was able to prevent the rapid
and circulated to health workers, public and NGOs. progression of the pandemic and ensured that the health
Health authorities focussed on preventing food-borne system was never overrun by the sheer number of cases.
Kerala has among the lowest case fatality rates in the
infections, water borne diseases, leptospirosis, and snake
country and is among the States that test the highest
bites. Unusual symptoms to be reported immediately to number of persons per million population. Even during
Primary/Family Health Centres. When the flood water the lockdown and unlock phases, the Government took
began to recede, steps were taken for the safe return of steps to ensure continuous care to all persons with non-
the victims of this disaster to their homes. All damaged communicable diseases and other chronic illnesses by
houses were restored in a phased manner, temporary providing medicine at home and ensuring access to
shelters were provided for families whose homes were health care through telemedicine and tele-counselling
completely damaged. Counselling services were arranged services. Kerala also ensured psychosocial support to all
for those traumatised in the tragedy. State and District its citizens during the lockdown period and beyond.
The elderly and other vulnerable persons were protected
Mental Health teams ensured the necessary support to the
by ensuring reverse quarantine. The efforts of Kerala
victims. Steps were taken to ensure continued treatment Government in “flattening the curve” have widely been
for non-communicable diseases. The disease surveillance commended, including by organisations such as the
system was strengthened. Steps were initiated to clean and World Health Organisation and other national and
super-chlorinate all drinking water sources and to ensure international public health bodies.
 Chapter 11
Infrastructure
Bridging the Infrastructure Gap in Transport The road network of Kerala, though well connected,
Sector faces severe constraints to expansion because of the
Introduction urban sprawl and the “ribbon” development along all
Transport development in Kerala must build on the routes. Existing traffic levels along most stretches are
specific features of its geography and its human-built excessive and beyond the road capacity. The traffic on
resources. The geographic features of the State are roads is increasing at a rate of 12 to 14 per cent a year.
unique. The land space available for building transport Capacity augmentation of existing roads is beset with
facilities is limited. The State has a coastline of 580 problems relating to limited rights of way and land
km, and is, at its widest, 120 km from coast to the acquisition. The existing road network has to undergo a
eastern border. It has three broad topographical regions qualitative improvement with the aim to reduce traffic
running north to south – the coastal plain, undulating congestion and delay, easy access to destinations and
midlands, and the highlands. Forty four rivers cut reduction in accident risks. Most PWD roads have to
across the State. Built transport infrastructure includes undergo massive upgradation; this includes widening
significant sectors of road, rail, air, inland waterway, and incorporating road safety features. Among the
and coastal transport. The future of transport thus lies issues to be addressed are geometrical improvement,
in an integrated system of connectivity. In the last five
junction improvements, pedestrian facilities, laying
years, the Government of Kerala has made significant
utility ducts, re-laying roads incorporating technical
interventions to develop such an integrated transport
corrections and entering into maintenance contracts.
sector in the State.
Roadside parking is another issue to be addressed.
Transport Infrastructure in the State
Road transport
Roads The number of vehicles per thousand population in
The road network in the State is owned and maintained Kerala as on March 2019 was 425, much higher than
by different departments and agencies, including the the all-India figure of 18. In 2019, 41,111 crashes were
National Highways Authority of India (NHAI), Public reported, resulting in 4440 deaths and 46,055 injuries.
Works Department (PWD), Local Self Government National Transportation Planning and Research Centre
Department (LSGD), Harbour Engineering Department
(NATPAC), in 2019, identified 340 priority crash
(HED), Irrigation Department, Forest Department, and
black spots across the State of which 221 were on
Indian Railways. The total road length in the State in
National Highways, 80 on State Highways, and 39 on
2019-20 was 3.3 lakh km. The road density in Kerala at
other roads.
3.9 km per square km is much higher than the national
The mismatch between the growth in motor
average of 1.80 km per square km. More than 80 per
vehicle traffic and the capacity augmentation of roads
cent of road network is through national highways, State
has resulted in increasing traffic congestion and road
highways and major district roads (MDR).
accidents throughout Kerala. Most of the roads in the
The Government of Kerala has been acutely aware of
State do not have adequate width to address the existing-
the importance of enhancing the quality and length of
level of traffic; only one-fourth of the roads have either
the road network in Kerala. It has initiated development
two lanes or four lane capacity while most of the roads
of two important road networks, the coastal highway
and the hill highway. The coastal highway, which is 654 have single lane or intermediate lane capacity. The bulk
km long, stretching from Manjeswaram in Kasaragod of inter-city and inter-state traffic is on national and
to Poovar in Thiruvananthapuram, passes through nine State highways, which constitute only 8 per cent of the
districts. It provides connectivity between major ports, total network.
including Vallarpadam, Vizhinjam, and Kollam. The Rail network
hill highway envisages the development of North-South The State has a rail network of 1257 km route
corridor through the hilly regions by upgrading and length with a total track length of 1588 km and 20
improving the existing network. The hill highway, as ordinary stations operating through Palakkad and
now aligned, is 687 km and passes through all districts Thiruvananthapuram Railway Divisions, covering 13
of Kerala except Alappuzha. railway routes.
164 | KERALA DEVELOPMENT REPORT 2021

Mass rapid transit systems Vizhinjam International Transshipment Terminal,

1) Kochi Metro Rail Project the first deep-water transshipment terminal in India, is
This is the flagship project of Government of Kerala under construction. The main advantage of Vizhinjam
designed to address the transportation woes of Kochi port is a natural depth of 18 m, proximity of 10 m to
city. The project is implemented through KMRL, the international shipping route and minimal littoral
which is an SPV jointly owned by Government of drift along the coast. The Government of Kerala has
Kerala and Government of India through equity constituted a special purpose vehicle namely Vizhinjam
participation. The Aluva-Pettah stretch (25.6 km) International Sea Port Limited (VISL).
with 22 stations was developed with an investment The port construction works were initiated in
of around Rs 6000 crores. December 2015 and construction work on 565 m
2) Light Metro Rail Project length of breakwater, 800 m long berth, a container
Kerala Rapid Transit Corporation Limited is yard, boundary walls and access roads are in progress.
entrusted with the implementation of Mass Rapid A water treatment plant with a capacity of 3.3 million
Transport Systems in Kochi and Kozhikode at a litres a day and an 11 kV power substation are complete.
total cost of Rs 6728 crores. Azhikkal Port Limited, an SPV formed with the
3) Silver Line Project Chief Minister as Chairperson and Minister for Ports as
Thiruvananthapuram-Kasaragod Semi-high Speed Vice Chairperson, was incorporated on March 6, 2018
Rail Corridor Silver Line project with a design speed for the development of Azhikkal port. The port is now
of 200 km per hour is a major project envisaged by renamed Malabar International Port and SEZ Ltd. The
the Government. The debt funding of the Rs 64,000 authorised capital of the Company is Rs 100 crore and
crore project through Kerala Rail Development the initial paid up capital is Rs 25 crore. It is wholly
Corporation has been approved by Government of owned by Government of Kerala and registered under
India. Companies Act, 2013. Technical Consultancy Services
Airports have been awarded to M/s Howe Engineering Projects
Kerala has four international airports – India Pvt Limited on April 23, 2018 and the agreement
Thiruvananthapuram, Kochi, Kozhikode, and Kannur. was signed on May 9, 2018. The port will have facilities
All civilian airports functioning in the State are to cater to vessels with drafts of 14.5 meter and will
international airports, a feature unique to Kerala. have 2 to 3 berths. These will be augmented in later
The Government of Kerala expedited the completion phases. Facilities such as additional berths and LNG
of Kannur International Airport. Phase I of the airport facility shall be considered in future phases.
was inaugurated in December, 2018. The facilities Inland water transport
in the airport include a runway length of 3,050 m Inland water transport is the most economical and
(10,006.56 ft), with a terminal building of 96,000 environment-friendly mode of transport. The State
square metre, 20 parking stands (apron), and 22, 000 Water Transport Department (SWTD), Coastal
square metre car/bus parking, 1200 square metre ATC/ Shipping and Inland Navigation Department
technical building and around 7750 square metre near (CSIND), and Kerala Shipping and Inland Navigation
the apron area of Ground Service Equipment Parking Corporation (KSINC) are the major agencies for
area. The 180 acre land acquisition process is going on the development of inland waterways in Kerala. The
for extending the runway to 4,000 m in phase I. development of State waterways is undertaken jointly
Ports by CSIND and Kerala Waterways and Infrastructure
Kerala has a coastal length of approximately 585 Ltd (KWIL), a special purpose vehicle formed by the
km. There is one major port at Cochin and 17 non- State Government with Cochin International Airport
major ports. Of the 17 minor ports in Kerala, four are Ltd (CIAL) as a major partner. With KIIFB assistance,
considered intermediate ports based on the berthing, KWIL has nearly completed development activities in
cargo handling, and storage facilities available. They are the Parvathi-Puthanar (Kovalam-Akkulam) stretch.
Vizhinjam, Beypore-Kozhikode, Azhikkal, and Kollam Major Policy Initiatives in the 13th Plan
ports. Ports are being developed on a priority basis for Electric Vehicle (EV) Policy
coastal shipping operations. Cochin port recorded the Kerala has formulated a draft policy for electric
highest growth rate among the major ports in India in vehicles. The policy is to promote electric mobility
handling cargo in 2018 and 2019. for commercial use by providing attractive incentives,
 TRANSPORT | 165

subsidies for the replacement of fossil fuel vehicles, 1332.16 km. The envisaged outlay for the project
procurement of electric vehicles, establishing charging is Rs 1500 crore. The proposed Hill highway along
infrastructure, retro fitment, promotional programmes with the Coastal Highway network would relieve
such as shared electric and connected mobility and pressure on the State highways and major district
other innovative programmes. The vision is to embrace roads besides providing alternative pathways for
electric mobility as a tool to promote shared mobility traffic movement in times of disaster/ crisis events.
and clean transportation and ensure environmental 48.1 km road between Punalur KSRTC junction
sustainability, pollution reduction, energy efficiency with Kollayil junction, has been completed.
and conservation and to create an ecosystem for 6) Urban Regeneration and Integrated Water Transport
manufacturing electric vehicle (EV) components in System in Kochi: Five canals are proposed to be taken
Kerala. up under the project: Edappally Canal (11.23 km),
Kerala Metropolitan Transport Authority Thevara-Perandoor Canal (9.88 km), Chilavanoor
The Government of Kerala formed the Kerala Canal (11.15 km), Thevara Canal (1.41 km), and
Metropolitan Transport Authority (KMTA) in 2019. Market Canal (0.66 km).
The authority is an umbrella body responsible for the 7) Modernising Water Transport in Alappuzha canals:
development, operation, maintenance, monitoring, The Project mainly intends beautification of 9 main
and supervision of urban transport in urban mobility canals and 59 sub-canals in Alappuzha. The project
areas. As per the KMTA Act, Metropolitan Transport is to be executed in two phases for a total funding
Authorities are to be formed in three major cities, cost of Rs 96.5 crore by KIIFB.  The project is
Thiruvananthapuram, Kochi, and Kozhikode. The implemented by Kerala Irrigation Infrastructure
activities of KMTA are the integration of transport, fare Development Corporation as Special Purpose
revision, renovation of bus transport systems, locating Vehicle (SPV). 
new parking lots and implementing a single ticketing Achievements in the Sector in the 13th Plan
system, by which people can use one ticket for various Public Works Department
modes of travel through an Intelligent Transport • Total road length in Kerala increased from
System. KMTA was formed in Kochi and has been 2,18,942.426 km to 3,31,904.2 km from 2016-17
functional since November 1, 2020. to 2019-20. Renovated 5612 km using BM and BC
KIIFB funded projects and 5968.2 km using chipping carpet from 2016-
The role of KIIFB is instrumental in setting up a wide 17 to 2020-21.
range of infrastructure development projects since • Completed Amabalappuzha-Thiruvalla road work
2016. The projects so far approved for financing are under KIIFB.
currently under various stages of execution. • Administrative sanction issued to implement road
1) Construction of Nedumbrakkadu-Vilakkumaram reconstruction works for Rs 3346.09 crore under
Bridge Across Vayalar Kayal in Alappuzha. Four- RKI utilising World Bank assistance of Rs 1200
laning of NH-47(66)-Karamana Kaliyikkavila crore and KfW loan (German bank assistance) of Rs
Phase-I Reach II-Pravachambalam to Vazhimukku 1800 crore.
in Thiruvananthapuram. • The DPR of 25 reaches 1251.04 km hill highway
2) Construction of coastal highway in Malappuram prepared and submitted to KIIFB for financial
District reach-I: Padinjarekkara to Unniyal junction sanction. Out of 25 reaches, KIIFB has accorded
(km 0/000-15/000) financial sanction for 18 reaches for a total amount
3) Flyover at Vytilla in Ernakulam district: The flyover of Rs 1506.24 crore. Works completed in Punalur
at Vytilla, a six-lane structure with divided carriage reach of Kollam District.
way and costing Rs 87.43 crore, was commissioned • Kerala Highway Research Institute (KHRI)
recently. has been upgraded as Centre of Excellence and
4) Flyover at Kundannoor: The flyover is a six-lane will focus on following thematic areas such as
continuous bridge with total length of 700m. It was innovation in design/construction practices road
inaugurated on January 9, 2021. asset management, road safety management, quality
5) Hill highway: The hill highway starts from assurance and contract management and promoting
Nandarapadavu in Kasaragod district to Parassala indigenous research and development.
in Thiruvananthapuram District, with a length of • National Transport Planning and Research had
166 | KERALA DEVELOPMENT REPORT 2021

finalised the list of 340 priority black-spots all over tracks at Uzhavur and Muvattupuzha and automated
Kerala. Out of 18 black spots identified along PWD enforcement control room at Kozhikode.
(NH), 15 has been rectified. • Started commercial-scale production of Kerala’s
• The estimated cost of coastal highway, which is own e-auto “Neem-G.”
around Rs 6500 crore, is being financed from the • Opened 13 sub-RT offices.
Kerala Infrastructure Investment Fund Board • KSRTC commenced “Relay” point-to-point service
(KIIFB). A stretch of 15 km of coastal highway on June 26, 2020 to facilitate long distance travel
construction from Padinjarekkara to Unniyal in during Covid-19 phase and Bus-on-Demand
Malappuram District, amounting to Rs 52.78 crore, (“BonD”) service on July 2, 2020 and launched
is in progress and currently 52 per cent of the work mobile ticket booking app “Ente KSRTC.”
has been completed. Ports
• 302.2 km work have been completed by KSTP • Automated cargo handling gears were installed at
under RKI in 10 stretches. 79.98 per cent physical Kollam, Beypore, and Azhikkal ports.
progress except one bridge have been achieved along • Commissioned container handling crane at Azhikkal
the Thalassery-Kalarodu stretches. and Beypore ports and a 750 HP Tug at Azhikkal
• PWD (Bridges) maintains 2716 bridges. 375 port.
bridges works across the State has been undertaken • Commissioned multipurpose passenger cum cargo
and completed 112 works during 2016-2020 (as on wharf at Kollam port at a cost of Rs 20 crore.
December 2020).127 KIIFB projects, 15 NABARD • Started Crew changing facilities at Vizhinjam and
projects, 8 Kasaragod Development projects, and Beypore Port.
19 Reconstruction works are in ongoing stage. • 127,520 tonne cargo handled at Beypore port
• Completed Vyttila and Kondannoor flyover. during 2019-20.
• Kollam bypass work completed and inaugurated • Transit shed, electronic data interchange facility and
on January 15, 2019 at a project cost of Rs 352.05 electronic weigh bridge completed in Beypore port.
crore and Alappuzha bypass work completed and Coastal Shipping and Inland Navigation (CSIND)
inaugurated on January 28, 2021 at a project cost of Status of the Development of different reaches of West Coast
Rs 348.43 crore. Canal is given below:
• Completed and inaugurated Phase I-Reach II • Kovalam-Kollam Reach (0-74.18 km): Canal
Pravachambalam to Balaramapuram (5 km) road renovated and made navigable from Akkulam
works. lake to Vettoor, Parvathy Puthanar stretch from
• Project Management Unit under KRFB (Kerala Kovalam to Akkulam made navigable and special
Road Fund Board) has been established as Special boat operated in this stretch. Completed works
purpose Vehicle for KIIFB funded projects. As on of 5 stretches in Kollam canal (except third reach)
March 31, 2020, 110 projects are ongoing, total in the Eravipuram-Ashtmudi lake, Varkala lake to
project outlay is Rs 4663 crore and 14 projects are Eravipuram Canal made navigable.
completed. • Vadakara-Mahe reach (450.08-467.69 km): In
Road transport Varkala to Mahi canal, 10 km stretch made navigable
• The number of motor vehicles having valid and constructed 3 out of 6 foot bridges; completed
registrations has increased from 1,20, 42, 691 in the construction of two Road Bridge (Parambil,
2018 to 14,184,184 in March 31, 2020. Kallayi) and opened to traffic.
• Traffic crashes involving two wheelers has decreased • Valapattanam to Neeleswaram reach (526.20-590.53
from 34,473 (94 per day) in 2018 to 16,970 (46 per km): Stretch made navigable from Valappattanam
day) in 2019. to Neeleswaram.
• The Motor Vehicles Department (MVD) has rolled • Constructed boat jetty near KMML, Chavara for
out 65 electric vehicles for enforcement activities - a handling hazardous materials like sulphuric acid
novel initiative in electric mobility. and furnace oil.
• Introduced VAHAN and SARATHY online portal • Renovated 7 boat jetties and constructed
for vehicle registration and driver licensing. Chempakkulam Jhankar boat jetty in Alappuzha.
• Commissioned heavy computerised vehicle testing Kerala Waterways and Infrastructure Limited (KWIL)
station at Kozhikode, computerised driver testing • KWIL is a special purpose vehicle involving State
 TRANSPORT | 167

Government and Cochin International Airport Ltd • Kochi Metro-Aluva to Petta (part of Phase I) stretch
(CIAL) formed to take up development of State 25.2 km with 22 stations started operation.
waterway with KIIFB assistance. KWIL has nearly • Government of India has accorded in-Principle
completed the development activities in Parvathi Approval (IPA) for Silver Line project (Semi High
Puthanar (Kovalam-Akkulam stretch). Canoli canal speed rail project).
and Kallayi stretch in Kozhikode made navigable. Sectorwise Strategies
Kerala Shipping and Inland Navigation Corporation Road transport
Limited (KSINC)
• Review road transport requirements and prepare
• Luxury Cruise vessel “Nefertiti” launched in 2019 long term development plans.
(Class VI passenger vessel with 200 nos passenger • Adopt people friendly regulations for safe, clean,
capacity). and efficient transport system.
• Double ended RO-RO vessel in operation for the • More IT, ITes focussing passenger and freight
Cochin Corporation. services on PPP mode.
• Launched KSINC indigenously built 500 MT bulk • Develop NHs, SHs, MDRs and other roads as per
cargo barge “Orion.” IRC standards to ensure seamless connectivity with
• Built and handed over an FRP 42 pax tourist boat enhanced safety features.
to Tourism Department. • Road investments focussing on reduction in travel
State water transport time, accidents, travel and freight charges and
• Inaugurated high-speed a/c Speed boat Vega-120 vehicle maintenance costs.
between Vaikom-Ernakulam on November 4, 2018 • Integrated district-level road network development
and launched “Vega 2” High speed AC passenger plans.
(120 Pac) passenger cum boat on March 10, 2020 • Intelligent transport system with real time data on
between Alappuzha-Kumarakom-Kottayam. vehicles, passengers, freight, and road assets for
• India’s first water taxi Nirva was inaugurated on seamless governance.
October 2020. Kerala is the first State to rollout a • State of the art logistic hubs and more way side
water taxi in India. amenities and parking spaces.
• India’s first solar cruise boat inaugurated on • Inspection and certification services on PPP mode.
December 2020. • HR development and capacity building for project
• Inaugurated India’s first solar boat Aditya, with planning and implementation.
75 passenger capacity on January 2017. In 2020, • Adoption of modern/innovative technologies
Aditya won the Gustave Award for Best Ferry in the through NATPAC, KHRI, and other institutes.
World. • Multimodal passenger/freight terminals/facilities.
• Introduced 5 nos of IRS class mono-hull steel boats • Time bound completion of NH widening, Hill and
with all safety equipment and conducted Kainakari Coastal Highways.
Circular Service. • Zero accident blackspots by 2025.
• Inaugurated the double-deck passenger cum tourist • More transport infrastructure attracting private
vessels “See Ashtamudi” especially designed for both investments.
normal commuters and tourists enjoying the beauty Railways
of Ashtamudi lake in Kollam district. • Complete north-south track doubling works in
• Procured 5 number of highly advanced rescue vessel the railway network by standardising the station
for five major station. This will help in evacuating facilities, removal of level crosses, automation of the
people trapped in flood affected areas to safe shelters signalling system and improving the track and its
during the time of heavy flood. fastening system to handle high speeds.
• Inauguration of First Route and Terminal buildings • Rail-Road coordination to be well planned: the
of Kochi Water Metro and Launch of Integrated railways for long-distance travel and logistics while
Urban Regeneration and Water Transport System road transport should be for short distance travel.
(IURWTS) was held on February 2021. • Install Roll on-Rollover (Ro-Ro) operation facilities
Other transport in stations through KRDCL.
• Kannur International Airport was inaugurated in • New railway lines and routes in pipeline to be
December 2018. expedited.
168 | KERALA DEVELOPMENT REPORT 2021

• Capacity augmentation of the railway should be in • Establishing terminal facilities and connectivity
tune with the demand and supply rather than the between ports and hinterland.
entire railway network. • Sustainable development of IWT in line with
• Light Metro projects (Thiruvananthapuram and Integrated Multimodal Transport Policy.
Kozhikode) to be realigned with new metro policy. • Promote industrial corridors along river banks and
• Phase II and JNL Stadium-Infopark, projects of foster waterways-based industrialisation.
Kochi Metro lines, to be fast tracked. • Policies to promote river based tourism projects
• Silver line semi-high speed project to be completed Ports
as per time lines. • Strengthen Maritime Board to ease the Port business
• Projects in pipeline: Thalassery-Mysore new broad and to ensure efficient regulation and facilitation of
gauge line; Nanjangud-Nilambur railway line to be cargo movement.
completed. • Expedite completion of Vizhinjam and Azhikkal
Airports Ports.
• Focus on completion of phase II expansion of KIAL. • Focus on bringing in more coastal shipping activities
• Develop Kozhikode Airport to handle more in already active minor ports.
international flights. • Expedite the completion of various projects under
Sagaramala, especially those aimed at improving
• Development of airstrips and helicopter taxi services
port connectivity, setting up coastal economic zones
for encouraging tourism sector.
(CEZs) and establishing new ports.
• Explore the possibility of private sector participation
• Gradual adoption of international standards for
in the airport modernisation and operation.
increasing the efficiency and ensure compatibility
• Expansion and development of Maintenance,
• Non-major ports in Kerala to act as coastal gateways.
Repair, and Overhaul (MRO) hub facilities for
• Minor/Non major ports need to be fully equipped
market-leading aircraft types in existing international
with adequate draft, proper connectivity, modern
airports.
material handling equipment, storage facilities and
• Development of new airports to consider the impact security system.
on existing airports, viability, and environment Kerala needs an integrated transport policy for
impact. the development of an integrated transport system in
• NABH-Nirman Scheme should be explored to the State that covers the multiple departments and
generate scientific proposals for futuristic Airport organisations in the State that are involved in the
infrastructure development in the State. transport sector. The vision for transport development
• Research and development need to be strengthened in Kerala should be to provide safe, economic, efficient,
to collaborate with foreign aircraft manufacturing and environmentally sustainable means of transport
companies. system to improve the mobility of people and goods
Inland Water Transport Sector by means of an appropriate intermodal integration of
• Comprehensive master plan for the waterways in the transport facilities.
State, and prioritisation of development activities. Sustainable Energy Infrastructure
Based on the master plan, the passenger and cargo Introduction and Key Issues
potential to be explored. In this chapter, we discuss some key issues concerning
• Classification of existing waterways and development the electricity sector in Kerala. Though the term
of proper standards including feeder canals. “energy” encompasses other sources as well, the key
• Standard operating procedure for waterway issues in the short to medium term are related to
maintenance. electricity generation, distribution, and consumption. 
• External funding including PPP to be explored. Power production, in its earlier avatar, was
Encouragement of private participation in waterway mainly a question of technological feasibility, natural
management and operations. resource endowments, and the magnitude of demand.
• To operate waterway of Kovalam-Kasaragod stretch However, in the last few decades, power production
as per national standards by 2025. has also become contentious from the viewpoint
• Incentives for procuring modern vessels as well as of environmental concerns. As a result, to some
passenger and freight movement. sections of public opinion, a narrow interpretation
 ENERGY | 169

of environmental sustainability, most appropriately and further exploitation became increasingly more
described as “do-nothing” environmentalism, over- complex and expensive. At the same time, the national
rides all other considerations of the earlier era. This and global debate on the claimed adverse impact of
interpretation in its original form was characterised hydel power has had a distinct effect on Kerala, with
primarily by opposition to all kinds of dam construction, the result that the expansion of hydel power has slowed
for whatever purpose, including power and irrigation. down considerably. Small-scale projects, and those
But increasing global concern over climate change has, already in the pipeline, some of which are extensions
contradictorily enough, reinforced the importance of or completions of earlier projects, have been the main
hydel power as a non-fossil fuel source of power, while source of new hydel generation. But while this debate
the opposition to power generation is now focused on was playing itself out, hydel power has acquired renewed
opposition to coal-based generation. salience in the context of climate change. 
There has also been a steady stream of opposition At the same time, the development of the power grid
to nuclear power, to the extent that in some developed across the country has enabled the increasingly reliable
countries, there is increased fossil fuel dependence. purchase of power by power deficit regions from other
Navigating this thicket of opposition has become a parts of the country that are power surplus, and local
significant decelerating factor in India’s expansion of self-reliance is no longer a pressing or even a significant
power generation, though the long-term sluggishness necessity. Thus, Kerala’s hydel generation becomes part
of industrial demand, the lack of capital, and the of the country’s commitment to increasing non-fossil
inadequacy of other infrastructure have also been fuel generation, while the State’s deficit in power can be
important constraints. met from other regions.
Renewable energy, mainly solar and wind Despite the long-standing public enthusiasm for
power generation, now occupies centre-stage in the renewables, Kerala’s record has been fairly limited in
development of power generation. Yet the enthusiasm comparison to other States in the country. The reasons
for renewables, especially because of the rapidly are not far to seek. Given the experience, reach, and
decreasing costs of generation, often ignores the costs sheer scale of Kerala’s public sector utility, the Kerala
that will be incurred in building up the infrastructure State Electricity Board (KSEB), and given the structure
required for significantly high-levels of renewables in of Kerala’s economy and industrial sector, the expertise
the electricity generation mix. Renewables also require and capacities of KSEB are critical to any kind of
land, and land on the scale required will not be easy to technological push in the power sector, including
obtain in all regions of the country. All serious studies renewables. The second reason for the limitation is that
of India’s future energy and power sector development land availability on the scale of Gujarat, Rajasthan,
clearly indicate that fossil fuels will continue to play a Maharashtra, Tamil Nadu, and Karnataka is simply not
significant role well past the halfway mark of this century. there in Kerala and hence the large-installation model
India cannot afford a commitment to carbon neutrality followed by these States has limited reach here.
at an early date, given its development deficits, and in The other dimension of Kerala’s power story is
any case, it is worth recalling that the commitment to the rapid changes in the governance, regulation,
carbon neutrality in the Paris Agreement implies one and institutional structure of the power sector at the
at the global scale that is by no means equivalent to a national-level. Successive Governments at the Centre,
country-wise requirement. irrespective of political affiliation, have insisted on the
In this background, in technological terms, Kerala's mantra of privatisation, and have relentlessly required
power sector has undergone an interesting evolutionary States to follow suit, while Central and State regulatory
trajectory, not so much in its actual material nature authorities have driven the process on their part as well.
as in the perceptions surrounding it. Kerala's natural The result is a skewed system where the social costs of
energy resource endowment being water, its energy power supply are borne by a large public sector on the
development began with the rapid development distribution side, while the profitable parts of the power
of hydro-power. In the early years of the post- generation sector has a substantial private presence. At
independence era, grid connectivity across India was the same time, without the economic fundamentals
low, both in qualitative and quantitative terms, forcing being sound and as the public distribution companies
many States in the country to seek self-reliance in power increasingly come under stress, the power generation
generation. The expansion of hydropower subsequently sector is also under financial stress. Regrettably, the
slowed down as low-hanging fruit were quickly picked, proposed amendments to the Electricity Act by the
170 | KERALA DEVELOPMENT REPORT 2021

Central Government seeks to remedy the situation by of renewable energy, as is the dominant paradigm
further tilting the scales in favour of the generation elsewhere. The KSEB’s participation indeed holds the
sector, especially the private players, without balancing key to the rapid deployment of solar energy, especially
the interests and compulsions of all aspects of the power grid-connected solar, and other innovative solar and wind
sector.  projects across the State. The ‘‘Soura’’ programme referred
Kerala has sought over the years to swim against the to above, has been conceptualised in this framework, with
tide in a principled fashion, except where overridden by the KSEB handling a major part of the deployment. The
the economic clout of the Centre or the pressure from technological capacities of the KSEB need to be harnessed
the regulators. And it has done so with the Government to the development of renewable energy rather than being
receiving strong support from large sections of public set aside or left unutilised. 
in the State. Today, the Government of Kerala is The power sector in the State is fully alive to the
committed to maintaining the dominant position of technological advances that have taken place in the
the public sector in the State’s power sector. The KSEB recent two decades in the country, and the State’s
is unarguably one of India’s best performing public strategy in the sector is drawing on the benefits of this
utilities, on all aspects of its functioning including advances. It also leverages several innovative ideas and
technical, customer service and financial parameters. In new initiatives to maintain its growth in the new era of
the series of disasters that have affected the State over sustainability. Especially in the era of renewables, newer
the last three years, including two major episodes of forms beyond solar and wind need to be considered and
flood and landslides and the Covid-19 pandemic, the evaluated for development and deployment in the State.
KSEB has provided outstanding service to the people The participation of the State’s Science and Technology
of the State in all respects. This includes maintaining as well the technological higher education institutions
the highest possible-level of service, undertaking repairs in such efforts would be mutually beneficial to both
and restoring damage speedily, and providing tariff and these institutions as well as the power sector itself. 
related concessions across many different sectors of the In what follows we provide a more technically
economy and the domestic sector, especially during the detailed account of the power sector, drawn mainly
ongoing Covid-19 pandemic.  from the latest Economic Review 2020 of the Kerala
Kerala is the first State in the country to attain 100 State Planning Board. The interested readers are invited
per cent household electrification. Electricity is being to read the full account in the Economic Review 2020
provided throughout the State 24x7x365 without for several details that are not covered in this chapter.
any major or routine recourse to power cuts or load The Power Sector in Kerala
shedding. Having achieved universal electrification, the
Power demand 
State is now concentrating on the moderation of the
grid to meet the ever-increasing customer aspirations Peak demand of the State in 2019-20 was 4316.8
concerning reliability, to attain the lowest-level of megawatt (MW) on March 27, 2019 between 22.00
system losses, to meet the requirements thrown up by hours and 22.30 hours. Morning peak demand during
decentralised renewable generation, and to ensure the 2019-20 was 3465 MW, on May 23, 2019 between
safety of installations. In addition to all these, the State 08.00 hours and 08.30 hours. The minimum demand
has also embarked upon a mission to build a state-of- was 1302 MW on August 9, 2019 between 4.30 and
the-art transmission network by constructing new 5.00 hours. The average power demand in the State in
lines, substations, and modernising existing systems, to 2020 was 3567 MW. Kerala’s Power scenario for 2019-
be ready for taking in the projected boom in e-mobility. 20 is given in Table 11.1.
The State has kicked off the ambitious “Oorja Kerala Sale of power inside the State
Mission” which is a bouquet of five inter-related projects The KSEBL sold 22,948.82 million units (MU) of
– Dyuthi 2021, Soura, Filament free Kerala, Transgrid power to 1,28,26,185 consumers in the State in 2019-
2.0, and e-safe – woven together as a combination of 20 including 11 bulk licences. A total revenue of
priorities set by the above aspects. The underlying spirit Rs 13,91,754 lakh was generated. The total revenue
of all the projects envisaged in the power sector of the from sale of power, including sales to other utilities
State is to contain the challenges of climate change and outside the State is Rs 13,918.79 crore.
to reduce the carbon footprint of the power sector. Power consumption
The vision of the State in the power sector does not see Consumption of all categories of consumers increased
the KSEB as a competitor ranged against the development except for the decrease in the public lighting category,
 ENERGY | 171

Table 11.1 Kerala’s power scenario for 2019-20 in million units (MU)
Particulars Energy in million
units (MU)
Gross generation KSEBL 5781.23
Power purchase from CGS at Kerala periphery 10,082
Power purchase through long term, medium term, and short term contracts and 9993.52
swaps at Kerala periphery
Total Power purchase from IPPs and CPPs inside the State 308.23
Total power purchase at Kerala periphery 20,383.76
Energy injected by Private IPP's at generator end for sale outside the State 37.50
through open access
Energy availed through open access at Kerala periphery 405.86
Auxiliary consumption to be deducted. 58.42
EXPORT: Energy sales by KSEBL, swap, return by KSEBL, and energy injected by 323.84
Private IPP's at KSEB periphery for sale outside the State through open access
Total energy input to Kerala periphery for meeting the consumption of the State 26,226.08
including energy wheeled through open access
Total energy at consumer end including energy wheeled through open access 23,058.91
Source: KSEBL

the low tension (LT) industrial category and extra high from 13.14 per cent and transmission and distribution
tension (EHT) consumers. The decrease in public (T&D) loss came down to 12.08 per cent from 12.47
lighting can be attributed to increase in light-emitting per cent. KSEB has made significant achievement in the
diode (LED) lamps. The reason for the decrease in LT field of reducing T&D loss. But AT&C loss increased
industrial category and EHT category has been assessed because of the impact of the Covid-19 pandemic
to be a consequence of the impact of flood 2019 and and lockdown restrictions. For distribution Strategic
Covid-19 in last quarter of the year. Business Unit (SBU), the AT&C loss is 10.77 per cent
In Kerala, electrical energy consumption increased and distribution loss is 8.70 per cent in 2019-20. The
to 23,058.91 MU (include open access consumption) in AT&C loss and T&D loss from 2014-15 to 2019-20 is
2019-20 from 21,750.25 MU in 2018-19, an increase of illustrated in Figure 11.2.
5.67 per cent. Electrical Energy consumption in Kerala Performance of Power Sector Agencies
in 2013-14 to 2019-20 is depicted in Figure 11.1. Power development activities in the State are carried
Aggregate Technical and Commercial (AT&C) losses out mainly through four agencies, namely, Kerala State
In 2019-20, AT&C loss increased to 14.07 per cent Electricity Board Limited (KSEBL), Agency for Non-

Figure11.1. Electrical energy consumption in Kerala in million units

Source: KSEBL
172 | KERALA DEVELOPMENT REPORT 2021

Conventional Energy and Rural Technology (ANERT), the Government of Kerala, under provisions of section
Electrical Inspectorate, and Energy Management 131 of the Electricity Act, 2003 by re-vesting (under
Centre (EMC). subsection (2) of section 131 and 133 of the Act)
Kerala State Electricity Board Limited (KSEBL) the functions, properties, interest, rights, liabilities,
Kerala State Electricity Board Limited is a (power proceedings, and personnel vested in State Government
utility) company incorporated under the Companies from erstwhile Kerala State Electricity Board. Re-vesting
Act 1956 (Central Act 1 of 1956). It is fully owned by was done on October 31, 2013. KSEBL is a single

Figure 11.2 Aggregate technical and commercial (AT&C) losses, and transmission and distribution losses (T&D)
in per cent
Source: KSEBL
Table 11.2 Status of Solar Projects, Kerala
Project MWp Target Status
date
Rooftop Solar Phase 1 EPC 46.5 2020-21 Under implementation through three vendors.
Rooftop Solar Phase 1 RESCO 60 2020-21 For 60-megawatt peak (MWp) in Renewable
Energy Service Company Operator (RESCO),
demand aggregation from roof tops of
Government buildings envisaged.
Rooftop Solar Phase 2 50 2020-21 Under tender process (12.5MW to be
Subsidy (sanctioned) implemented by ANERT) and is expected to be
completed by April 2021
Rooftop Solar Phase 2 Subsidy 100 2020-21 Under tendering process and expected
(anticipated) completion date is December 2021
Solar Park Ambalathara 50 – Commissioned
Solar Park Paivallika 50 2020-21 Ongoing, developed by THDCIL
Solar Park Cheemeni 100 2021-22 Land handed over to RPCKL by Government
NTPC Floating Solar 225 2021-22 Detailed Project Report received for 100MWp in
Anchuruli and 25MWp in Cheruthoni. Another
100 MWp planned.
SECI Floating Solar 150 2021-22 Kulamavu, 50MWp and Banasurasagar 100MWp
Bathymetric survey to be conducted
Reverse bid by KSEBL from IPPs 200 2020-21 Bid floated after approval from KSERC
Total 1031.5
Note: THDCIL is Tehri Hydro Development Corporation Ltd and RPCKL is Renewable Power Corporation of Kerala Ltd.
Source: KSEBL
 ENERGY | 173

holding company with distribution, transmission, of 12 substations and 2084 circuit kilometre (Ckt-
and generation strategic business units with separate Km) of EHT lines. Out of these 12 substations, 4 are
accounting. The company was incorporated on January Air Insulated Substations (AIS) and the remaining 8
14, 2011, and it started operation as an independent are Gas Insulated Substations (GIS). The packages
company with effect from November 1, 2013. KSEBL in the first phase will be completed by 2021. Twelve
is responsible for the generation, transmission, and substations (3 AIS and 9 GIS) are included in Phase II
distribution of electricity in the State, with a particular of the project which is grouped into 12 packages. The
mandate to provide electricity at an affordable cost for physical progress of the work as on September 2020 is
domestic as well as agricultural purposes. given in Table 11.3
Oorja Kerala Mission. The Government of Kerala 5. eSafe. The eSafe project jointly mooted by the
started the Oorja Kerala Mission in 2018 for the Electrical Inspectorate and KSEBL aims at zero electrical
integrated development of the electricity sector in the accidents in the State. The programmes include
State. It aims at implementing five important projects safety awareness, rewiring tribal households at Agali,
detailed in the following section. Sholayur, and Pudur Panchayat, pilot implementation
1. Soura. KSEBL intends to achieve a cumulative of safety system by preventing accidents from snapping
capacity of 1000 MW through solar projects by 2021. of overhead lines, and electric fence energiser test. Also,
Of this 500 MW is from rooftop plants. The status of the Local Self Government Department has accorded
the solar projects is given in Table 11.2. sanction to local bodies in 2020 to prepare a project
including Non-Paying Group (NPG) consumers to
2. Filament-free Kerala. Through this project, all rewire their premise with at least four points and Earth-
existing compact fluorescent lamp (CFL) and filament leakage circuit breaker (ELCB) ensuring safety standards
bulbs in the domestic and street lighting sector in the for Rs 12,287 per family. With the completion of the
State will be replaced with energy-efficient and long- project, it is expected that all domestic households
lasting light-emitting diode (LED) lamps targeting a will be connected with earth leakage protection as per
reduction in peak demand, global warming, and Hg standards.
(mercury) pollution. More than 13 lakh consumers Capacity addition in 2019-20. The total installed
have already registered for LED lamps in the 1st phase capacity of power in the State as on March 2020 was
in which the domestic sector was targeted. One crore 3,061.37 MW. Of this, hydel power contributed the
LED bulbs will be distributed as part of the project. major share amounting to 2,129.42 MW (69.56 per
3. Dyuthi 2021. Dyuthi 2021 is a Rs 4000 crore project cent), while 676.54 MW was contributed by thermal
to modernise the distribution grid and to reduce projects (22.10 per cent), 70.28 MW from wind (2.30
power interruptions, consisting of more than 90,000 per cent), and 185.13 MW (6.04 per cent) from solar.
individual projects spread across 25 project areas. Figure 11.3 highlights the total installed capacity of
The project as a whole will be completed in four-year Kerala from hydel, thermal and renewable sources.
period (by end of 2022). . Floods in 2018 and 2019 Of the total installed capacity of 3,061.37 MW in
and Covid-19 has affected the progress of the project. 2019-20, the contribution of State sector is 2,238.22
4. Transgrid 2.0: 2nd  Generation Transmission MW (73.11 per cent), Central sector 359.58 MW
Network. Transgrid 2.0. is a Rs 10,000 crore project (11.75 per cent), and private sector 463.57 MW (15.14
to reduce the transmission losses and to remove the per cent).
current limitations and constraints in the transmission Installed generation capacity. Kerala State Electricity
network. The project is scheduled to be implemented Board Limited owns 38 hydel stations with a capacity of
in two phases. Phase I of the project is scheduled for 2058.76 MW, one wind farm of 2.025 MW, two thermal
execution from 2017 to 2022 and Phase II from 2019 to plants of 159.96 MW, and solar plants of 17.47 MW
2024. Administrative Sanction for Rs 6375 crore from at various places. In 2019-20, the major addition was
Government of Kerala has been obtained for Phase1 the 60.39 MW capacity by private plants. The KSEBL
of the project. Sanction obtained for KIIFB fund. The added only 0.62 MW solar plants. The Rajiv Gandhi
first phase of the project has been started. The target is Combined Cycle Power Plant (RGCCPP) Kayamkulam
to upgrade the existing 220 kV line to 400 kV. is the only Central Generating Station (CGS) in the
The works included in the 1st phase of the project are State. Indian Renewable Energy Development Agency
grouped into 13 packages and comprises construction Limited (IREDA) Solar Park of 50 MW at Kasaragod
174 | KERALA DEVELOPMENT REPORT 2021

Table 11.3 Progress of Transgrid 2.0 - Phases I and II in 2019-20

Sl Work Quantum Progress
No of work
A Transgrid 2.0 - Phase I    
a KIIFB Funded works
1 Substations 12 nos 220 kV s/s Manjeri commissioned on 23.06.2020.
(220 kV: 11, 400 kV: 1) Other 11 substations works are in progress
2 Construction of 321 220 kV Karukkadam to Kothamangalam charged
transmission lines route-km on 11-12-2019. Other works are in progress
b PSDF Work
1 Construction of 211.46 Two packages are funded in PSDF. Kakkayam to
transmission lines route-km Nallalam work commissioned. The 220 kV portion
of MDKA-MLPA already charged on 10-7-2019. All
other works are in progress.
B Transgrid 2.0: Phase II    
a KIIFB Funded works
1 Erection of substations (220 9 nos 20 kV s/s Kakkad and Pathanamthitta tendered.
kV: 8, 400 kV: 1) For Sasthamcotta, Thuravur and Irinjalakuda KIIFB
sanction is awaited. In case of Panjal, Palakkad
and Edamon, DPR is being prepared
2 Construction of transmission 431.4 Kottiyam to Kollam GIS work completed. Other
lines route-km two works awarded. For balance 4 works sanction
is awaited. For 6 works DPR is under preparation.
b Green Corridor Package
1 Erection of substations (220 4 nos Approval of MNRE awaited
kV: 3, 400 kV: 1)
2 Construction of transmission 102 route-
lines km
Note: PSDF is Power System Development Fund
Source: KSEBL

Table 11.4 KSEBL internal generation, 2019-20

Particulars Capacity as on Capacity added Capacity as on Total Internal Generation
31.3.2019 (MW) in 2019-20(MW) 31.3.2020 (MW) (2)+(3) in 2019-20 (MU)
1 2 3 4 5
Hydel 2,058.76 2,058.76 5,741.83
Thermal 159.96 159.96 12.03
Wind 2.025 2.025 1.42
Solar 16.85 0.62 17.47 25.95
Total 2,237.60 0.62 2,238.22 5,781.23
Source: KSEBL

and 2 MW ANERT, Kuzhalmandam solar plants are expected date of commissioning are given in Table 11.5.
State Government projects. The KSEBL is executing 10 hydel projects in the State
Ongoing generation projects in the State. The details with installed capacity of 193.5 MW, to be completed
of the ongoing hydroelectric projects in the State with by 2021-22.
 ENERGY | 175

Figure11.3 Installed capacity of power, Kerala State, 2019-20 in MW

Source: KSEBL
Table 11.5 Ongoing hydro power projects in the State
Name of scheme Installed District Date of project Expected date of
capacity (MW) sanction commissioning
Thottiar HEP 40 Idukki January 16, 2009 December, 2021

Sengulam Augmentation 85 MU Idukki July 6, 2009 March, 2022

Scheme
Chathankottunada II SHEP 6 Kozhikode November 9, 2017 March, 2021
Poringalkuthu SHEP 24 Thrissur April 1, 2014 May, 2021
Bhoothathankettu SHEP 24 Ernakulam February 15, 2014 August, 2021
Upper Kallar 2 Idukki August 12, 2016 March, 2021
Pallivasal Extension 60 Idukki March 2, 2007 December, 2021
Pazhassi Sagar 7.5 Kannur October 27, 2017 December, 2021
Chinnar 24 Idukki April 27, 2018 April, 2022
Peruvannamoozhy 6 Kozhikode May 25, 2018 May, 2021
Source: KSEBL

Enhancing renewable energy component in the During the Covid-19 lockdown, KSEBL implemented
energy mix of the State several relief measures to consumers to support them
KSEBL is considering all option to harness renewable during hard times. Also, the Customer Care Centre was
power. Besides development of solar power through strengthened and new services introduced to achieve
Soura projects, installations of other renewable plants customer loyalty and facilitate the care of service. 
are also being taken up. The target is to meet 40 per 1. Service at door steps. Pilot implementation started
cent of energy requirements from renewable sources by in 39 sections under electric circle, Palakkad. As
2022. The existing, ongoing, and pipeline renewable the name indicates the programme is to provide all
projects for 3309 MW are given in Table 11.6. services provided by KSEBL to the public as well
Distribution as consumers at their doorsteps on call. The pilot
The distribution network as on March 31, 2020, has implementation has attracted the attention of all
64,212 circuit kilometres (Ckt-km) of 11 kilo volt parties and is lauded as an earnest step in customer
(kV) lines, 2,93,280 Ckt-km of LT lines and 81,470 satisfaction by the public as well as the media.
distribution transformers with a step-down capacity 2. Self-meter reading app. The KSEBL has developed a
of 9,915 mega volt ampere (MVA). The infrastructure self-meter reading app, which serves as a solution to
development of the distribution system is included door lock problems and meter reading errors.
in Dyuthi 2021 project, under Oorja Kerala Mission. 3. E-samayam. e-samayam, a virtual queue to visit
176 | KERALA DEVELOPMENT REPORT 2021

Table 11.6 Ongoing and pipeline renewable projects, Kerala State, 2020
Project Capacity Present status
in MWp
A Solar
I Existing 204.22
II Ongoing and Proposed
1 KSEBL projects 23.27 Ongoing 13.355 MWp and Proposed 9.912 MWp
2 Solar Park: THDCL Paivallika, 150 Paivalika 50 MWp ongoing, Cheemeni 100 MWp-land
Kasaragod and Cheemeni. handed over to RPKCL
3 Saura Rooftop Solar: Phase1 110 46.5 MW in EPC mode under implementation. For
60MWp in RESCO demand aggregation from roof tops
of Government buildings envisaged.
4 Saura Rooftop Solar: 150 50 MWp allocated by MNRE is under tender process
Phase2 (12.5 MW to be implemented by ANERT) and is
expected to be completed by April 2021. Balance
MNRE subsidy scheme 100MWp allocation expected from MNRE is also under
tendering process and expected completion date is
December 2021
5 NHPC Floating Solar, West 50 Tendering in process
Kallada
6 NTPC Floating Solar, 92 Draft PPA Signed, work awarded by NTPC.
Kayamkulam
7 NTPC Floating Solar 225 Detailed Project Report received for 100 MWp in
Anchuruli and 25 MWp in Cheruthoni. Another 100
MWp in Cheruthoni is under consideration
8 Reverse bid by KSEBL from IPPs 200 Bid on solar from ground mounted plants floated after
approval from KSERC on all India basis

9 PM-KUSUM 50 Demand aggregated for 10 MWp sanctioned .Requested

for additional 40 MWp to MNRE

10 SECI Floating Solar 150 Kulamavu 50 MWp and Banasurasagar 100 MWp-
bathymetric survey to be conducted

11 Solar Power through SECI 200 Negotiation in process

Total solar – existing, 1604.49

ongoing and proposed
B Wind
I Existing 80.28
II Ongoing and proposed
1 NHPC Palakkad 8 Ongoing
2 Ramakkalmedu (Pvt.) 2 Ongoing
3 SECI TRANCHE VI scheme 200 PSA executed
 ENERGY | 177

4 SECI TRANCHE VII scheme 100 PSA executed

5 KSEBL Kanjikkode 2.5 Ongoing

6 KSEBL Intercropping 2.65 Ongoing
Total ongoing and proposed 395.43
C Hydel (Renewable)
i Existing 215.56
ii Proposed and ongoing 193.5
iii On pipeline 894 (Includes 780 MW Idukki extension scheme)

Total Hydel under RE: existing, 1303.06

ongoing and proposed

D Waste to energy
1 Wayanad 0.2 Planned
2 Njalianparambu 6 Tender invited for work
Waste to energy – total, 6.2
ongoing, and proposed
Total capacity expected at the 3309.18
end of 2021-22
Source: KSEBL

section offices of KSEBL is being implemented as for e-vehicles. Of these, 6 stations are completed and
a pilot in Kesavadasapuram and Vellayambalam work for remaining stations are in progress. Under
section in Thiruvananthapuram.  the Department of Heavy Industries, Government of
Transmission India’s Faster Adoption and Manufacturing of Electric
To achieve the goal of 24x7 uninterrupted quality power Vehicles in India (FAME-India) phase-II scheme, 30
to the consumers and also for the availability of power charging stations are being installed in seven cities with
on demand, sufficient capacity of the transmission over one million populations. As on October 15, 2020,
network is to be developed. Also, works are necessary the Central Government has sanctioned another 181
to satisfy the N-1 planning criteria put forth by the stations and the installation of these 181 stations will
Central Electricity Authority. It is targeted to complete be completed by March 2022.
another 45 substations of different voltage-level and Kerala Fibre Optic Network (K-FON). The scope
1300 circuit kilometre of transmission lines by March of the project is to build a wide area network across
2022.  the State to provide a cost-effective and high-speed
Other flagship projects of KSEBL internet connection to 30,000 Government offices and
In addition to the five projects included in Oorja Kerala educational institutions, and free internet access to 20
Mission cited above, the following four projects also lakh BPL families. Implementation and maintenance
form the flagship projects of KSEBL of the network will be carried out by a special purpose
vehicle (SPV) with equity partnership of KSEBL, Kerala
E-Mobility. Kerala is the first State in India to prepare State Information Technology Infrastructure Limited
an e-mobility policy. The KSEBL has been designated (KSITIL), and the State Government. The KSEBL
as the State nodal agency to ensure the deployment and KSITIL will hold 49 per cent equity each in fund
of e-vehicle charging stations across the State. With and remaining two per cent by the State Government.
a State funding of Rs 8.2 crore, the KSEBL planned Among other benefits to KSEBL, the project ensures
to set up 32 charging stations covering all districts high-speed internet connectivity to all its offices. KSEB
of the State for ensuring State-wide charging facility will get pole rent plus 4 fibres free of cost along the
178 | KERALA DEVELOPMENT REPORT 2021

distribution line (47,289 km). It will meet additional the internal efficiency of the KSEBL. No financial
data communication requirements for control and assistance is included in the MoU. The KSEBL has
protection, smart grids and smart meters and internet achieved important operational targets except for smart
of things. The assets created will vest with KSEBL.  meter installation, ERP, and rural feeder audit. ERP,
The works are awarded in two packages. Package which is developed in house, is in the coding stage and
A with Probable Amount of Contract (PAC) of Rs feeder monitoring has been completed for rural feeders.
1028.2 crore funded by KIIFB consists of K-FON The KSEBL has decided to not to implement smart
works and package B for reliable communication and metering.
data acquisition network (RC and DA network) with Deendayal Upadhyaya Gram Jyoti Yojana
PAC Rs 99.2 crore in power system development fund. (DDUGJY). Deendayal Upadhyaya Gram Jyoti Yojana
The Operating Expenses (OPEX) for Package A and B (DDUGJY) for the rural areas, a Government of
for seven years is Rs 363.42 crore. India scheme, was implemented in Kerala for rural
Enterprise Resource Planning (ERP). ERP will allow electrification, strengthening of sub-transmission,
KSEBL to use a system of integrated applications to and distribution infrastructure, including metering at
manage the business and automate many back-office distribution transformers, feeders and at consumers
functions related to accounting, material management, end. The closure report has already been submitted to
and human resources. The project was conceived as a Rural Electrification Corporation (REC).
centrally sponsored scheme under Integrated Power Pradhan Mantri Sahaj Bijli Har Ghar Yojana
Development Scheme (IPDS). ERP project plan was (“Saubhagya”). Under Saubhagya scheme, free electricity
submitted to Power Finance Corporation (PFC). The connection to all households (both APL and poor
first instalment of Rs 42.64 crore, that is 60 per cent of families) in rural areas and BPL families in urban areas
the grant amount, has been sanctioned and Rs 6 crore including single-point wiring was envisaged. Saubhagya
has been released. Extension up to March 2021 has as such was not sanctioned to Kerala. However, in 2018,
been issued by PFC. ERP software is being developed Rs 95.75 crore was sanctioned to Kerala to reconnect
in-house. The project plan is finalised and development 3,19,171 households de-electrified in the 2018 floods.
team has been formed. Coding is in the final stages. The Of which, Rs 54.59 crore has been received. The closure
project got delayed because of Covid-19 restrictions. report of Saubhagya has already been submitted to Rural
Communicating Fault Pass Detectors (CFPD).The Electrification Corporation (REC).
employees of KSEBL, after in-house research, developed Integrated Power Development Scheme (IPDS).
cost-effective and user friendly CFPD. KSEBL intends IPDS stage-1 was implemented in 25 distribution
to deploy 16,267 plus CFPDs in its HT network circles in the State to strengthen sub-transmission
by 2022. As on September 2020, 3255 units were and distribution networks, metering of distribution
assembled and issued. 2564 units have been installed as transformers, feeders, and consumers in an urban area.
on October 6, 2020. Out of the total installed 801 units Closures of IPDS (system strengthening) for 25 circles
are found faulty. The training of system supervisors for are in progress for submission to PFC.
field-level maintenance assistance for CFPDs has been
The progress of the IT-component initiatives in the
completed.
three ower sector is as follows:
Central Government Schemes • Phase-II IT implementation under IPDS.  The
The important Central Government power sector detailed project report (DPR) for Rs 22.86 crore,
schemes in Kerala are detailed below. The State covering 21 towns was sanctioned in 2017.
Government, however, through the KSEBL, exercises Implementation related activities like ring-fencing
its discretion in the implementation of parts of these have been completed in all 21 towns. 367 modems
schemes as warranted. in border meters and feeder meters of all 21 towns
Ujwal DISCOM Assurance Yojana (UDAY). This has been installed. Modems are communicating
is the financial turnaround and revival package for with a central server. The integration of software
electricity distribution companies (DISCOMs) applications with the existing Restructured
initiated by the Government of India. Government Accelerated Power Development and Reforms
of Kerala and KSEBL have signed a memorandum of Programme (RAPDRP) applications are progressing.
understanding (MoU) with the Government of India • Real-Time Data Acquisition System (RT-
(GoI). The objective of signing the MoU is to improve DAS) for non-Supervisory Control and Data
 ENERGY | 179

Acquisition (SCADA) towns under IPDS. Tender farmer. ANERT is entrusted to implement solarisation
for implementing RT-DAS was invited on July of grid-connected pumps.
9, 2019. Since only one bidder qualified for the Sustainable Rooftop Implementation for Solar
technical evaluation, retendering was done. Letter Transfiguration of India (SRISTI). Government of
of Acceptance was issued to M/s. SCOPE TNM India, phase II grid connected rooftop solar programme,
Private Limited on June 11, 2020.  aims to achieve a target of cumulative capacity of
• RAPDRP Part A-SCADA/Distrubution Management 40,000 MW from rooftop solar (RTS) projects by
System (DMS) Project. Part-A installation of SCADA the year 2022. This programme will be implemented
completed in all three cities, Thiruvananthapuram, with the total central financial support of Rs 11,814
Kochi, Part-B and Kozhikode. A third-party crore. Power distributing companies (Discoms) are the
inspection has been completed. Part- B works were implementing agencies. Domestic consumers with a
completed on March 31, 2018. Project closure was ceiling of 10 kWp plants are eligible for central financial
done on June 2018. assistance (CFA). 50 MW has been allocated to the
• Big Data Analytics.  It is envisaged to develop a State in this subsidy scheme. The 37.5 MW capacity of
system for big data analytics to transform a large the project will be executed by KSEBL and the rest 12.5
amount of raw data from the core applications of MW by ANERT. The State has requested an additional
KSEB to a knowledge base for analytical purpose. 200 MW for 2020-21.
• Cyber Security Projects. KSEBL will implement
24x7 Power for all. Kerala attained 24x7 power supply
advanced cyber security measures for improving the
status in all areas of the State including for agriculture
overall IT security landscape of the organisation and
consumers. 1,100 urban feeders and 640 rural 11
avail ISO Certification for the Data Centre/Data
kV feeder are connected to the national power portal
Recovery (DR) Centre.
(NPP) and can be monitored.
Pradhan Mantri Kisan Urja Suraksha Evam Utthan
Unnat Jyoti by Affordable LEDs for All (UJALA). This
Mahabhiyan (PM-KUSUM). PM-KUSUM envisages
scheme provides LED bulbs to domestic consumers
utilisation of barren agriculture land for installing
with a target to replace 770 million incandescent bulbs
solar plants, providing a permanent income to farmers
from power generation and solarisation of agriculture in the country with LED bulbs by June 2020. Up to
pumps which will reduce utilisation of power from the September 2020, Kerala has replaced 135.6 lakh lamps
grid and in turn reduce the requirement of financial in households with LED bulbs.
support from the Government in the form of subsidies. Perform Achieve and Trade (PAT). PAT scheme is a
Ministry of Non-Renewable Energy, Government of flagship programme of the Bureau of Energy Efficiency
India, has allotted 10 MW solar plants to the State in under the National Mission for Enhanced Energy
component-A of the PM-KUSUM scheme. The KSEBL Efficiency (NMEEE). The second cycle of PAT notified
is implementing the scheme and has put forward in March 2016 covers DISCOMs also. The Kerala
two models for landowners. The first one is the lease State Electricity Board Limited has complied with all
model where panels are installed on lease (Engineering, requirements mandated by the PAT Rules. KSEBL
Procurement, and Construction (EPC)/ Renewable has ensured prompt and timely fulfilment of all action
Energy Service Company Operator (RESCO) method) points stipulated in the PAT scheme, as part of the
and the second one is the investment model (PPA PAT Cycle II. KSEBL has also complied with all the
method) where investment is done by landowners mandatory provisions of the Energy Conservation Act
itself. 169 participants have registered in PM-KUSUM. 2001, as an electricity distribution company.
Detailed survey was completed and locations State Funded Projects
suitable for 10 MW plants have been identified in The progress of State Government funded projects in
both models. Discussion with applicants in investment 2019-20 are given in Table 11.7
mode is to be initiated. In component–C of the scheme,
Power Grid Corporation of India Limited: Interstate
solarisation of 10 lakh grid-connected agriculture projects
pumps of individual pump with capacity up to 7.5
The major interstate transmission projects relevant
HP is included. The Government of India will provide
financial support of up to 30 per cent while the State is
to Kerala are the following.
to provide at least 30 per cent of the cost of solarisation. Pugalur-Trichur High Voltage Direct Current
The balance cost will be shared by the beneficiary (HVDC) project. This project is an extension of 600
180 | KERALA DEVELOPMENT REPORT 2021

MW Raigargh-Pugalur HVDC corridor to Kerala. The Component 1. Rehabilitation; remedial measures and
Raigargh to Pugalur corridor has been test charged on improvement of basic facilities of 12 hydroelectric
May 2020. This 320 kV DC line of length 153.5 km has projects consisting of 37 dams.
92 km inside Kerala. Of this, 64 km up to Vadkkanchery Component 2. Institutional strengthening.
is as overhead and rest 28 km is through underground
(UG) cable. The line has 2000 MW capacity. As on Component 3. Project management.
September 30, 2020, 95 per cent of work related to The total expenditure incurred in all the components
400 kV HVDC station Thrissur was completed, transit till June 30, 2020 is Rs 102.7 crore. The amount of
station Vadakkanchery is nearing completion, 320kV claim reimbursed till date to Government of Kerala
HVDC-UG cable Vadakkanchery-Thrissur stretch – through Government of India is Rs 99 crore. The
completed 320 kV HVDC OH Portion (Ozhalapathy amount received by KSEBL from Government of
to Vadakkanchery), stringing on 12.34 km out of total Kerala is Rs 62.8 crore.
63.641 km is pending, and completed 400 kV LILO DRIP II. In line with ongoing DRIP projects, Central
section (Thrissur S/S to 400 kV Kochi-Thrissur line). Project Management Unit (CPMU), Central Water
Edamon-Kochi 400 kV line. The inauguration of Commission is pursuing with the second phase of
the 148 km long Edamon to Kochi power highway DRIP with World Bank Assistance. Administrative
will increase the State’s power import capability by sanction has been obtained for Rs 70 crore works
800 MW. The Edamon to Kochi power highway from KSEBL. Works amounting to Rs 22.5 crore have
can transmit power to Kerala from any part of India been tendered. The works included are strengthening
through the 400 KV network. The total project cost, of Poringalkuthu dam, strengthening road, and setting
including construction and compensation expenses, up Cement Concrete (CC) lab at Idamalayar dam.
comes to around Rs 1300 crore and has been completed. Power Theft
The Edamon to Kochi line passes through Kollam, Cases of power theft and connected abnormalities are
Pathanamthitta, Kottayam, and Ernakulam. The new very low in the State because of the strict enforcement
line reduces power import via inter-state Udumalpet to of law and awareness in society. The KSEBL constituted
Palakkad and Mysore to Arikode lines. the Anti Power Theft Squad (APTS) in all districts to
Dam Rehabilitation and Improvement Project detect pilferage and misuse of electricity. Field staff is
(DRIP). Dam Rehabilitation and Improvement Project also given monthly targets for inspection. In 2019-20,
(DRIP) aims to improve the safety and sustainable 338 theft cases were detected, from which 2.38 MU were
performance of existing dams and associated estimated as extracted by theft and malpractices. The
structures with the assistance of World Bank through cost of energy collected from assessments made during
Government of India. It is a flagship project of Ministry inspections in 2019-20 is Rs 7.66 crore. Compared to
of Water resources, River Development, and Ganga 2018-19, there is an increase of 42.61 per cent in the
Rejuvenation, Government of India. The project has number of cases detected and a 114.41 per cent increase
been extended to March 2021. The components of in MU estimated. The cost of energy collected from
DRIP are: assessments increased by 284.92 per cent.

Table 11.7 Progress of State Government funded projects, 2019-20 in Rs crore

Project Requested by As accorded by Expenditure
KSEBL Government
ERP implementation 5.68 5.68 5.68
Smart Grid Kochi 17.6 – –
Tidal and Wave energy 0.02 .02 –
ESCOT project- HVDS 0.46 .46 –
ESCOT Project- Standardisation of DTR 0.54 .54 –
Edamon Kochi 400KV line compensation 3 – 3
Total 27.3 6.7 8.68
Source: KSEBL
 ENERGY | 181

Electrical Accidents 2020 to generating companies and licensees treating

The KSEBL has targeted 2019-20 as a zero-accident the restrictions placed by the Central Government
year and efforts were made to attain the objective. as  force  majeure event. The reduced LPS is applicable
Considerable progress has been achieved in reducing for a period till June 30, 2020. Further, it was stipulated
accidents to department staff. There were 113 fatal that  the LPS should not be more than the cost that
accidents to human beings and 39 fatal accidents to the generating  companies and transmission licensee
animals from KSEBL installation. Compared to 2018- would have to bear because  of the delayed payment.
19 there is a decrease of 8.13 per cent in fatal accidents In the case of generating companies and transmission
to human beings and a decrease of 30.35 per cent fatal licensees, whose tariff was determined under section 63,
accidents to animals. There were also 185 non-fatal DISCOMS may claim the relief from its obligations
accidents to human beings in 2019-20, while it was regarding the rate at which LPS is to be paid as per
211 in 2018-19. From consumer installations, 126 fatal the  force majeure  provisions in the Power Purchase
accidents occurred to human beings and 25 Non-fatal Agreement (PPA).
accidents to human beings.  The Government of India has also requested the
State Governments to issue similar directions under
Recent Disasters and their Impact
Section 108 of the Electricity Act to respective State
Impact of Covid-19 on the power sector Commissions and the distribution companies pass on
There was a considerable impact on the power sector similar or more benefits to the consumers with respect
because of Covid-19 and consequent lockdown. There to LPS. Further to this, Central Government issued
was a substantial reduction in electricity consumption advisory to all power generation and transmission
due to lockdown. Also consumers were unable to pay CPSEs under Ministry of Power and all subsidiaries/
their due to the distribution companies. This affected joint ventures of power generation and transmission
the liquidity position of the distribution companies CPSEs under the Ministry of Power for deferment of
impairing their ability to pay the generation and capacity charges for power not scheduled, to be payable
transmission companies without interest after the end of lockdown period in
Important policy measures announced by Central three equal instalments and to provide a rebate of about
Government. Ministry of Finance, Government of 20-25 per cent on power supply billed (fixed cost) to
India clarified that disruption of supply chains due Discoms and inter-State Transmission charges levied by
to spread of novel Corona virus in China and any Power grid Corporation of India (PGCIL). The advisory
other country will be considered as a natural calamity was communicated to the Government of Kerala and
and  force majeure  clause may be invoked wherever Discoms for passing on to the end consumers in the
considered appropriate following due procedure. electricity bill for the lockdown period on account of
Covid-19 pandemic.
To address the liquidity crunch of the distribution
The Ministry of Power communicated the amount
licensees, Ministry of Power, Government of India
of rebate as Rs 50.86 crore and the capacity charges
relaxed the provision of 100 per cent payment security
deferred is Rs 63.38 crore to the State of Kerala.
to be ensured by the State Load Dispatch centres for
the purchase of power by distribution licensees. As Reliefs announced by the Government of Kerala.
per the relaxation, it was decided that considering the The Government of Kerala also announced several
unprecedented and force majeure situation, power may measures for coping with difficulties encountered
be scheduled even if a payment security mechanism is during the lockdown. The Chief Minister, Government
established for 50 per cent of the amount for which of Kerala in the press conference held on April 21,
payment security is to be otherwise established 2020, announced that the Industrial and Commercial
contractually till June 30, 2020. Consumers of KSEB Ltd. have been provided with an
Ministry of Power, Government of India issued option for the deferred payment of fixed charges for
Directions under Section 107 of the Electricity Act to the months of March, April, and May, 2020 up to
Central Electricity Regulatory Commission in the public December 15, 2020, at an interest rate of 12 per cent
interest to specify a reduced Late Payment Surcharge (instead of 18 per cent) on deferred fixed charges. Later,
(LPS) for payments which become delayed beyond  a this facility was extended to private hospitals also, as per
period of 45 days from the date of presentation of a bill the directions of the State Government. The domestic
during the period from March 24, 2020 to June 30, consumers were also allowed to remit half of their bill
182 | KERALA DEVELOPMENT REPORT 2021

amount during the lockdown period and to remit the In the distribution network, damages to 56
balance amount in two equal instalments. transformers and 8506 poles were reported, along with
Impact on finances of KSEB. The Covid-19 pandemic distribution line snapping at 36,274 locations causing
has adversely impacted the financial position of KSEB damages to the extent of Rs 86.18 crore as per KSEBL
Limited. It is estimated that the loss sustained by the estimates.
utility during the period March to July 2020 because Emergency action Plans for dams. Emergency Action
of the pandemic and considering the factors mentioned Plan (Tier-I) for 37 dams approved by CWC has been
hereunder will be around Rs 1240 crore. A summary published in KSEBL website. Stakeholder consultation
of financial impact of Covid-19 on KSEB is given in meeting for 24 dams of KSEBL was conducted.
Operation and Maintenance (O&M) manuals for 36
Table 11.8.
dams approved by CWC have been published by KSEBL.
Floods and the aftermath De-siltation of reservoirs. In the light of unprecedented
Most of the losses caused by the floods in 2019 were in rain fall and consequent landslides and flood in 2018 and
the northern districts of the State – Palakkad, Kannur, 2019, KSEBL accorded sanction to invite Request for
Kozhikode, Malappuram, and Wayanad. The three Proposal (RFP) for the desiltation of reservoirs of KSEB
generators of Kakkayam, seven minor hydroelectric as per the guidelines specified in the approved Standard
power stations, and floating solar plant on the Barapole Operating Procedure (SOP) by Government of Kerala.
Canal were damaged. The operation of 43 substations, Desiltation work of Lower Periyar reservoir has been
including two 220 kV substations and six 110 kV awarded to M/s Travancore Cements Ltd. The work
substations, was disrupted. It is estimated that 50.47 could not be started for want of temporary diversion
lakh consumers were affected by the 2019 floods. of forest land for stacking the desilted material. In case
KSEBL suffered a loss of Rs 243.05 crore. of Maduppety, Anayirankal, Ponmudi, Sengulam, and
In 2020, the State of Kerala witnessed heavy cloud Kallarkutty reservoirs, tenders were invited for assessing
bursts followed by incessant rains bringing in large scale the storage capacity and letter of acceptance issued to
damages. A large number of structures including electrical M/s. Geo Marine Solutions Private Ltd., Mangalore in
installations were damaged and some installations were 2020. For Poringalkuthu reservoir, bathymetric survey
washed away because of landslides. KSEB Ltd. was one was arranged through Kerala Engineering Research
of the affected departments with many of its installations Institute, Peechi. Kundala reservoir storage capacity
damaged and its distribution network in disarray. was assessed and no desiltation requirement was found.
Damages caused widespread interruptions, especially in Storage assessment study of major reservoirs is planned
the Idukki and Kannur districts. in DRIP-II.

Table 11.8 Financial impact of Covid-19 on KSEB (as estimated on July 31, 2020)
Particulars Amount
Loss of revenue due to reduced sale of energy 865.13
Arranging transportation for stranded employees 0.08
Waiver of interest on delayed payment of electricity charges (domestic) 12.28
Absorption of bank transaction charges for online payment 4.5
Providing cashback for promotion of online transaction 9
Waiver of application fee 1
Rebate on fixed charges (industries/commercial establishments and private hospitals) 76.62
Interest burden on deferred payment of fixed charges 3.24
Additional subsidy to domestic consumers 200
Interest burden due to deferment of additional security deposit 17
Setting up Covid-19 relief facilities 50
Interest burden due to deferment of pole rental charges 0.2
Total 1239.05
 ENERGY | 183

Key Challenges and Issues line, 70 per cent of the transmission charges have to be
The following are some of the key challenges and issues paid as regional component. If the line is declared as
that the KSEB faces in the immediate future. national asset, the burden on State can be reduced by
Legal environment
30 per cent.
Further liberalisation of the electricity market as Distribution. The network has many bottlenecks
proposed in the Electricity (amendment bill) 2020, if such as poor networking, old and under rated lines,
realised would erode the consumer base and revenue of lack of alternate feeding facility, low HT/LT ratio,
the utility considerably. The new sub license clause may and non-standard structures. Increasing electrical
lead to induction of private licensees in profit prone areas. accidents is another issue faced. Upcoming e-vehicles
In the case of draft Electricity (Rights of Consumers) boom demands adequate charging infrastructure and
Rules, 2020 the bulk of the proposals have already been additional power. The task of installation of smart
implemented by the KSEB expect some proposals such meters in distribution as envisaged by Government of
as prepaid metering have financial implications. The India is also a challenge to KSEBL. Installation of smart
draft standard bidding documents for privatisation of meters can possibly can reduce losses and enhance
distribution licences if implemented will leverage the prudent revenue collection.
process of privatisation. These amendments question Covid-19. Impact of Covid-19 on the utility has been
the very existence of the utility in public sector. severe. Liquidity infusion schemes are required. The
Power purchase liquidity infusion schemes under the “Atmanirbhar
KSEBL has been able to keep power purchase cost at Bharat Abhiyan” is only a loan package, that too with
an optimum-level. However, because of exorbitant an unreasonable interest rate and conditions such as
cost, Kerala is not in a position to absorb power from Government guarantee. Moreover, the scheme which
the Kayamkulam unit of NTPC; but is paying the proposes to transfer the amount directly to generating
fixed charge. Intervention of the Ministry of power, companies to clear their dues from DISCOMs is
Government of India, was requested to ensure that the practically of no use to utilities such as KSEB who
burden is brought down to a minimum by reduction make prompt payment.
in annual fixed cost and additional allocation of KIIFB Funded Projects
alternate cheaper power to Kerala. But there has been TransGrid 2.0. The objective of the TransGrid 2.0
no intervention so far to solve the problem. Also project is to develop a robust and integrated power
increase in cost of thermal power due to Flue-Gas system in Kerala. Any transmission system is expected
Desulfurisation (FGD) and Removing Nitric oxide gas to be capable of meeting the demand at any part of
from coal (DeNOx) equipment installation in thermal the network without any overloading/constraints in a
power stations across the country and the transfer of secure, reliable, efficient, and economic manner even
the burden to distribution companies remains a threat. under contingency conditions. The benefits of the
Transmission. Inadequate power corridors to import project include
power from the northern grid and insufficient 1. 24x7 uninterrupted supply to all consumers in the
network of intra-State transmission lines have been State
the issues faced by the State. Right of way problems 2. Better and strong national grid through the State
and scarcity of land for drawing new transmission to ensure power from anywhere to any place in the
lines is the main hindrance for intra state transmission State.
network development. As per the Central Electricity 3. Reduction of transmission losses
Regulatory Commission (CERC) (Sharing of inter- 4. More power flow towards northern region of Kerala
State Transmission Charges and Losses) Regulations, as most of the generation assets are in southern
2020, the transmission charges of AC line under region.
balance component will lead to transferring of liability Kochi Lines Package (Construction/Upgrading
of underutilised capacity to States as Kerala who are not 220/110 kV line using narrow base MCMV towers).
responsible for these asset additions. It is expected that The main purpose of the upgradation of the lines in
there will be an increase in transmission charges payable the project – Kochi Lines Package – is to facilitate the
by State to two to three times the existing charges. Also, import of power from the Power Grid Coporation of
in case of the Raigargh-Pugalur-Madakkathara HVDC India Limited (PGCIL) to meet the growing demands,
184 | KERALA DEVELOPMENT REPORT 2021

to evacuate the hydro power from the ongoing and Energy Management Centre (EMC)
future hydro stations of KSEBL, and to strengthen the Energy Management Centre (EMC) is the State
Kochi metropolitan power supply lane. designated agency of Bureau of Energy Efficiency,
The project includes four transmission line sections Ministry of Power, Government of India for promoting
that are part of Kochi line package (CLP) in Transgrid energy conservation, energy efficiency, and enforcing
2.0 as well as 220 kV cable from Thuthiyur to Kaloor Energy Conservation Act, 2001 in the State. EMC
substation as continuation of Package C (Brahmapuram also promotes small/mini/micro hydel schemes. Small
to Thuthiyur) transmission line section. The project Hydro Power (SHP) Cell constituted by Government
consists of four components. of Kerala under Power Department is also attached
Project A. 3.6 km from Karukadam to Kothamangalam SS in EMC to give impetus for development of SHPs
Project B. 11.1 km from Pallikara substation (SS) to through private participation.
Aluva SS Department of Electrical Inspectorate
Project C. 4.5 km from Brahmapuram to Thuthiyoor The Electrical Inspectorate is functioning under the
and 7 km UG cable from Thuthiyoor to Kaloor Department of Power, Government of Kerala. Safety
Project D. 81 km from Pallivasal PH to Aluva SS and inspections are carried out and sanction for energisation
1.9 km Line In Line Out (LILO) to Kothamangalam for all HT/EHT and other medium voltage installation
SS The approved amount for the project is Rs 372.73 in the State are issued by this inspectorate. Meter
crore. Testing and Standards Laboratory (MTSL) under the
Department of Electrical Inspectorate provides testing
Air Insulated Substations (AIS). The project involves
and calibration of various types of electrical equipment.
construction of Air Insulated Substations at 4 locations,
At present, calibration facilities is available for voltage,
upgradation of existing substations at Kothamangalam
current, resistance, frequency, power, power factor, and
and Chalakkudy, and construction of new substation
energy. The testing facilities include pre-commissioning
at Chithirapuram and Manjeri for a total estimated
tests for protection relays and instrument transformers.
cost of Rs 138.44 Crore. It includes the following
Pre-commissioning tests are also conducted for
components.
power transformers, cables and circuit breakers. All
Project 1: Upgradation of 66 kV substation at calibrations and tests are conducted as per national
Kothamangalam to 220 kV level. and international standards. Enquiry into all electrical
Project 2: Construction of a new 220 kV substation at accidents occurring in the State, forwarding the reports
Chithirapuram to the State Government, and taking actions against
Project 3: Upgradation of 110 kV substation at responsible person/authority are also done by Electrical
Chalakkudy to 220 kV level. Inspectorate.
Project 4: Construction of a new 220 kV substation at The Electrical Inspectorate department implements
Manjeri. three schemes namely; Meter Testing and Standards
Laboratory, Effective Implementation of Quality
Non-conventional and renewable sources of energy Control Order, and E-Safe Kerala. Revenue from the
ANERT, the Agency for Non-conventional Energy and department for the last two years is Rs 107 crores
Rural Technology (ANERT) and Energy Management (excluding duties from KSEBL), which includes testing
Centre (EMC) are the major agencies in this field. fees from Meter Testing and Standards Laboratory
Agency for Non-Conventional Energy and Rural (MTSL), other Regional Testing laboratories, and from
Technology (ANERT) other services.
ANERT, the Agency for Non-conventional Energy Kerala Power Policy 2019
and Rural Technology (ANERT) is an autonomous The key objectives of Kerala’s Power Policy are the
body under the Power Department, Government of following.
Kerala. ANERT is the independent agency for the • Transform Kerala power sector to provide electrical
implementation and propagation of non-conventional infrastructure services matching global standards
sources of energy in the State. It is also the nodal living up to the expectations on ‘‘Nava Keralam.’’
agency for the Ministry of New and Renewable Energy • Modern electric network that is reliable, safe, efficient
Sources (MNRE), Government of India, to carry out and smart.
the Central Government programmes in Kerala. • Meeting the electrical energy requirements of the
 ENERGY | 185

State continuously without any form of restrictions. 2017 for open-source platform based applications
• Balancing the need of sourcing power at the most and a special honour from REC for 'Urja Mitra', the
competitive rates and at the same time ensuring Outage Management System.
energy security of the State. • Oorja Kerala Mission (2018-22). Government of
• Enhancing share of renewable energy in the generation Kerala launched the “Oorja Kerala Mission” in 2018
mix, addressing its variabilities using appropriate aimed at the integrated development of electricity
technology with a framework for sharing associated sector in the State. It aims at implementing five
costs. important projects – Saura, Filament free Kerala,
• Keeping price of electricity affordable and at the same Dyuthi 2021, Transgrid 2.0, and esafe. The progress
time ensuring financial health of electricity industry. of work on these schemes have been stated earlier in
• Improving efficiency and effectiveness of KSEB Ltd this chapter.
and rationalising its operational costs. • Mission reconnect 2018. This was launched
• Bridging the gap between consumer expectations and by KSEBL during the floods of 2018. 16,158
actual-levels of service delivery through organisational distribution transformers were repaired, 1735
revamping and increased utilisation of information distribution transformer stations were reconstructed,
technology. 25.60 lakh service connections were restored, 5275.80
• Overcoming limitations of present electrical industry km distribution lines including one lakh damaged
structure to offer next generation services in areas poles were reconstructed, three lakh single phase
such as renewable energy, energy efficiency, electric energy meters and fifty thousand three phase energy
motor vehicles and storage technologies. meter were replaced, and restored 720 single-point
Major Achievements of Power Sector Agencies connections where existing installation were damaged
in the floods. This work was completed in 21 days.
KSEBL
• Six e-Vehicle charging stations were set up with State
• Kerala became a fully electrified State. Kerala was
funds.
declared a fully electrified State on May 29, 2017 by
• Commissioned Kanchikode solar plant 1 MW and
providing connections to over 1.5 lakh applicants
solar projects of total capacity 5.90 MWp.
under the “Total Electrification Scheme.” The State
• Transmission Sector. 62 new substations were
also did away with power cuts and load shedding.
constructed and commissioned. Of these, 6 are
• Transmission and distribution loss. It is targeted
220 kV, 25 are 110 kV, 6 are 66 kV and 25 are 33
to reduce aggregate technical and commercial
kV. Constructed and commissioned 1130 Ckt-
losses below 10 per cent. Overall transmission and
km transmission line. A total of 16 lakh service
distribution loss in 2015-16 is 14.37 per cent and
connections were provided. Installed 7600 km 11 kV
that for 2018-19 is 12.47 per cent. Transmission and lines and 9400 transformers. 1600 kVLT lines were
distribution losses was brought down to 12.08 per constructed.
cent in 2019-20. Aggregate technical and commercial • Distribution Sector. Service Connection - 1108086
loss for Distribution Strategic Business Unit has Nos, DTRs- 6553 (Nos), faulty meter replacement
remained at 10.77 per cent despite the impact of (Nos)- 3924986, LT line extension (km) - 7353,
Covid-19 in last quarter of 2019-20 and distribution Re- conductoring - LT (Ckt km)- 20309, Re-
loss was reduced to 8.70 per cent in 2019-20 from conductoring - HT (Ckt km) - 1945 (up to June
9.09 per cent in 2018-19. 30, 2019). Further, 1080.5 km of 11 kV line and
• Provided uninterrupted power and maintained all 3689.141 km of LT lines constructed.
essential services during Covid-19 lockdown. • Edamon to Kochi power highway. Completed
• Generation. Commissioned Vilangad Hydro construction work of Tirunelveli-Idaman-Kochi-
Electric Project (HEP) (7.5 MW), Barapole HEP Madakathara 400 kV line from Idaman to Kochi
(15 MW), and Adyanpara HEP (15 MW) in 2015- on September 25, 2019 with the objective of
16, Vellathooval SHEP (3.6 MW) in 2016-17, and strengthening the power transmission network of
Perumthenaruvi Project (6 MW, 25.77 MU) in 2017- Kerala and facilitating the supply of power to the
18, and Kakkayam Project (3 MW, 10.39 MU) in State from Kudankulam Nuclear Power Station. As
2018-19. a result, the power import capacity of the State has
• KSEB received “Smart Infrastructure Innovation increased by 500 MW. In addition, there has been
Award” from Indian Express Group in November a significant increase in voltage levels. Construction
186 | KERALA DEVELOPMENT REPORT 2021

of Pugalur to Madakkathara 325 kV HVDC Line all the 14 districts and procured one Battery Operated
has been completed. As a result, the power import Mobile Exhibition Unit.
capacity of the State is expected to increase by 2000 • Installed 25 kW on-grid and 41 kW off-grid solar
MW. power plants in public buildings during 2018-19
• As a result of measures taken to improve domestic • Under Innovative RE projects, 3 solar power coir ratt
production, 310.4625 MW of electricity has been installed on pilot basis and 1000 solar lanterns have
generated from renewable energy sources, including been distributed under “Jyothi” – solar power pack
small hydropower projects. 200 MW of electricity for street vendors.
was generated from solar power plants. 27 MW of • Launched e-Market place in 2018, incentivising
power was generated from wind farms. users for utilising the electronic market place (www.
• Electricity Adalats were conducted in all the districts buymysun.com).
and out of 17000 complaints, received 15000 were • Mobile apps were developed for the use of public and
resolved in the Adalats. Social auditing was started various field activities of ANERT and empanelled
for the smooth functioning of the sector. vendors. The features of the apps include interaction
ANERT with individuals and institutions to express their
• Received the National Energy Conservation Award interest to partner with ANERT, checking feasibility
for the last three years as a result of the State's on installing renewable energy systems, online
installation reports by vendors for renewable energy
involvement in energy conservation activities.
systems, and online verification of installation by
• Rolled out 140 Akshaya Urja Service centres across
ANERT officials.
the State
• ANERT installed a solar cold storage system at Subicsha
• Grid connected 2 MW solar power plant at
Coconut Producer Company Ltd, Kozhikode as a
Kuzhalmannam, Palakkad fed 49 lakh units of
pilot project to support farmers. The system consists
electricity to KSEBL grid. This is the first grid
of a 5 hp compressor motor and solar panels with 6
connected solar photo voltaic (PV) plant in the State
kW capacity, and can hold up to 5 tonnes of products.
under Independent Power Producer (IPP) mode.
In the event of a power outage the cold storage can
Off-grid solar roof top power plant of cumulative maintain its cold temperature for up to 30 hours. It
capacity 1941 KW installed. was inaugurated on September 24, 2019.
• Completed empanelment of agencies for the • Installation of Solar Radiation Resource Assessment
installation of solar water heating systems, solar Stations: ANERT had installed two Solar Radiation
lanterns, solar home lighting systems and solar Resource Assessment Stations at Kuzhalmannam
LED street lighting. Empanelment process for (Palakkad) and Ramakkalmedu (Idukki) in association
manufacturers of batteries and invertors is initiated. with National Institute of Wind Energy (NIWE)
Empanelment process for biogas and improved (Government of India). These are in addition to the
chulah was completed. existing ones at Kannur and Pulinkunnu (Alappuzha)
• Three grid connected solar power plants with installed by NIWE under MNRE programme.
aggregate capacity of 470 kW and five off grid solar • Solar cooking system: A parabolic-trough concentrator-
power plants with aggregate capacity 35 kW installed. based steam cooking system was installed by ANERT
• Installed 2199 Biogas plants (capacity 0.75 and 1 in the pre-matric hostel, Neriyamangalam, Ernakulam
cubic metre per day), 2827 improved chulah, and in 2019. The community solar steam cooking system
solar water heating system in 7926 sq. metre. is designed for cooking food for 100 inmates It is the
• Installed 4195 kW grid interactive solar photo voltage first solar community steam cooking system installed
(SPV) power plants of 2 kW to 100 kW to individuals/ in Kerala.
institutions and 3279 kW off-grid rooftop solar PV • Accreditation of Solar Power Plant Installers
power plants of capacity 1kW to 5 kW. (Technicians). Considering the increased interest
• Under Total Electrification Programme, 1625 houses in renewable energy sector and to ensure quality of
and public buildings in Idukki District, 681 houses installations ANERT has started accrediting installers
and public buildings in Palakkad District and 16 of solar power plants and 150 installers were trained
houses and public buildings in Wayanad District were in 5 batches.
electrified • Installed 1 kW power plant solar wind storage hybrid
• Established integrated renewable energy complexes in at Ramakkelmedu.
 ENERGY | 187

Energy Management Centre Perumbalam Gram Panchayat at the rate of Rs 50 per

• Through energy conservation efforts saved 464 MU bulb. With the support of BEE, EMC was awarded
of electricity and 88,194.75 MT of oil. the work of installation of 10 kWp Off Grid Solar PV
• Inaugurated Pathamkayam SHP (8 MW), 4 kW system at the primary health centre at Perumbalam
Pico Hydel project at Echampetty tribal colony, Gram Panchayat. The work is being implemented
installed 20 kW Vortex Micro hydroelectric project through ANERT.
at Kaduvetti bridge, and 2 kW at Murikkassery police • The detailed energy audit of six major HT pumping
station. stations of Kerala Water Authority (KWA) is
• Produced short film “Aanayum Mumbe” (Before the performed through EMC empanelled energy audit
light goes off). The film received special jury award in firm.
the 9th National Science Film Festival of India 2019 • As part of Urja Kiran, 700 awareness programmes,
held at Mohali. 280 energy conservation rallies, and 280 awareness
• Model energy efficient panchayat. Three gram programmes, covering all the 140 constituencies in
panchayats – Aryad Gram Panchayat, Vathikudy Kerala was conducted in association with 155 NGOs.
Gram Panchayat, and Rajakkad Gram Panchayat – • As a part of Energy Clinic Programme, 372 women
were made energy efficient. across nine districts were given training. 5,000 Energy
• Received the Future Kerala Brand Awards 2018 in the Clinics were conducted which covered about 1 Lakh
category of responsible Energy Conservation Brand consumers.
on March 27, 2019 at Kochi. • Three-day training programmes on LED bulb repair
• Implemented energy audit report recommendations for children with disabilities from National Career
in three Civil Station buildings – Alappuzha, Kollam, Service Centre, Nalanchira was conducted in May
and Pathanamthitta. 2019 and two-day training programme on LED star
• Made Pelicode panchayat in Kasaragod, the first making was given to the same batch of students in
incandescent lamp free panchayat in India December 2019
• Allotted 20 SHP projects, totalling an installed Electrical Inspectorate
capacity of 43.8 MW to private parties on BOOT • Revenue from the department for last two years is Rs
basis. 124 crore as a result of modernisation of laboratories.
• Retrofitting of energy efficient equipment in 10 • Successfully launched online software “SURAKSHA”
primary health Centres (327 LED tubes, 145 Ceiling on October 1, 2018. Application for scheme approval
fans, 240 LED bulbs). and energisation are now received via online.
• EMC's Green Building, recognised by UNEP in • Completed standardisation and rewiring work with
its Global Status Report-2017 on zero emission, Earth Leakage Circuit Breaker for 400 houses at
efficient, and resilient building, received IGBC-Lead Agali, Sholayur, and Pudur, in Palakkad District and
Gold Rating. remaining work for 460 houses is under progress.
• EMC bagged the National Energy Conservation Award • Retained “SEVOTHAM CERTIFICATION”
instituted by the Ministry of Power, Government of (Service Quality Management System Certification)
India in the category of State Designated Agency. as per IS.15700:2005 from the Bureau of Indian
• NITI Aayog with the support of BEE prepared the Standards.
first State Energy Efficiency Preparedness index and • Procured two fully-automatic energy meter test bench
Kerala topped the index with 77 points. (10 positions) at regional testing lab in Kozhikode and
• Model Energy Efficiency Village Programme in Ernakulum, and three fully automatic transformer
Aranmula Gram Panchayat inaugurated on June test set for conducting pre-commissioning test as
22, 2019. As part of the programme, Walk Through per quality control order and power system analysis
Energy Audits and awareness campaigns were software, ETAP and compact LED testing equipment
conducted at schools/Government offices/buildings in Meter Testing and Standards Laboratory (MTSL).
by the concerned selected audit firm and EMC • Short film on Electrical Safety “Velicham" was
resource persons released on June 14, 2018 for spreading the awareness
• As part of Model Energy Efficiency Village on electrical safety.
programme, 6000 nine watts LED bulbs were • To resume electric supply and equipment in the
distributed to the domestic consumers of the flood affected areas, department has launched a
188 | KERALA DEVELOPMENT REPORT 2021

safety programme named Operation Suraksha and its To ensure adequate economic and social growth
objective is to standardise and ensure safety. in any country or regions, it is indispensable that all
• SKOCH. Electrical Inspectorate online software available energy sources be used in the most effective
Suraksha was awarded SKOCH order of Merit award and economical manner. The Government of Kerala’s
in e-governance category. priority is to increase power generation to meet
• Retained National Board for Testing and increasing demand. It is also an important objective of
Calibration Laboratories (NABL) certification for Government policy to tap the full potential of wind,
electro technical calibration in Meter Testing and solar, and small and medium hydro projects.
Standards Laboratory, Thiruvananthapuram. NABL KSEBL aims to meet the challenges in the power
accreditation has also been obtained for Regional sector essentially by improving operational efficiency
Meter Testing Laboratories at Thrissur, Wayanad, sans privatisation and achieving global standards by
Palakkad, Kozhikode, and Kasaragod Districts. means of its Oorja (Energy) Kerala Mission. The
• Procured Power System Analysis Software ETAP and experience of the restructuring in Kerala was distinct: it
Compact LED testing equipment in MTSL. emphasised, first, that only an integrated utility could
• Banned substandard ELCB. assure effective services, and, secondly, the advantage of
The Way Forward achieving financial control by vertical unbundling into
The Government has fulfilled the objective of total strategic business units.
electrification in the State. The State distribution grid The model created by KSEBL has evolved as a
can now provide uninterrupted power on demand at sustainable and replicable model.
reasonable cost to any inhabited locality.
 Chapter 12
Environment and Growth:
Achieving the Balance
Introduction and Overview These challenges are common to the vast majority
The challenge of sustainable development that is at the of nations and societies. However, in developing
heart of the conundrum that the title of this chapter societies such as India the challenge of sustainability
expresses is not particular to any nation, region, has a dual aspect that must be noted. Both aspects are
landscape, or ecosystem. It is a pervasive challenge associated with inequality, but there is a need to note
that, policy-makers must appreciate, is not easily met. that inequalities in countries like India arise from both
Unfortunately in the era of the Anthropocene, with the international as well as domestic inequalities. This is
sense of urgency arising because of the problem of global particularly relevant to global environmental questions
warming, the tendency has been to argue that solutions such as climate change, where recognition of global
are readily available, if only the requisite political inequalities is fundamental to the understanding of
will is summoned. Global experience shows that this both the problem and its solution. Regrettably the
is hardly the case. Sustainable development involves moral attitude to the environmental challenge, calling
such a comprehensive re-ordering of the productive for renunciation of material development even by
capacities of society that such simplistic views are clearly the very poor, or the reduction of their civilisational
misplaced. In reality, sustainable development can only aspirations to the mere provision of three square meals
evolve as a process, an evolution that must include the a day, has gained considerable traction in policy circles.
local and the global. Solutions cannot be drawn purely Thus it must be understood that sustainable
from either the social, the economic or the scientific development would be one-sided if the significance of
dimensions of the problem, but most involve all such both the words were not given due weightage. Second,
factors in interconnected fashion. especially in developing societies the development of
Popular enthusiasm for environmental action and productive capacities cannot be short-circuited or set
sustainable development is certainly on the increase. aside in the name of sustainability. Third, the challenge
However, such enthusiasm, unless suitably guided, is of environmental sustainability and development can
in danger of missing the scientific and technological only be overcome with the greater use of science and
dimensions of the problem or the complexity of technology and not by a retreat from it.
the economic issues. Typically, popular enthusiasm, Fourth, science is also the indispensable ally and
especially in developing societies, but also in the foundation on which to build beyond traditional
developed world, is drawn to the romantic notion knowledge, from which there may be many things to
that downgrading technological advance is the key, or learn. But science is also indispensable to separate the
to the equally romantic view that simply restricting grain of valid experiential knowledge from the chaff
consumption of material goods, with some ascetic ideal of hearsay, prejudice or plain obscurantism. Fifth,
of saving the planet, will be sufficient. Such romanticism without science as a guide, popular enthusiasm for
is clearly misplaced in societies that still harbour grave environmental protection may also slip into an alarmist
social and economic inequalities and where the leading mode that cannot but have a retrogressive impact not
question is not the restriction of the over-consumption only on development, but on society as a whole.
of material goods but the absence of elementary or Sixth, the importance of science has been recently
basic material needs. Other tendencies include the re-emphasised by the Covid-19 pandemic and the
idealisation of traditional knowledge. In fact, the discussions that have ensued over its origins, the means
current challenge of sustainable development has no to contain its impact, and the need to monitor and,
parallel in the past and hence traditional knowledge is to the extent possible, guard against such zoonotic
indeed relatively powerless to deal with contemporary outbreaks. On another front, the impact of the
realities. Thus communities that depend on traditional recurrent floods and landslides over the previous two
knowledge for their basic sustenance are far more likely years, preceded by an unprecedented drought, have also
to be victims of large scale ecological transformations brought home the need for science-based study and
rather than the harbingers of means to deal with such intervention, to build resilience to climate extremes in
transformations. the era of climate change.
190 | KERALA DEVELOPMENT REPORT 2021

These comments and observations are obviously to promote scientific information gathering and data
not exhaustive but are made keeping in mind not only collection, with appropriate training. To date, all over
their general validity but also their relevance to Kerala India, it has proven difficult to provide focused, active
in particular. work to the BMCs beyond the initial effort to list and
Kerala and Its Environment catalogue various environmental assets at the local level
Kerala is one of the States of India where the in the preparation of the Peoples’ Biodiversity Registers.
development-environment connection thrusts itself In the absence of a definite work agenda, BMCs may
on life, society, and governance in inescapable fashion. tend to become local lobbyists for environmental
The landscapes and ecosystems of the State are unique protection of whatever form that may strike their
in many ways because of the particular features of its fancy, thus creating local-level conflicts rather than a
geography and climatic conditions. Kerala is one of the cooperative understanding.
country’s and world’s distinctive biodiversity hotspots. It At the level of governance, the Environment
has all the three maximally productive and biodiversity (Protection) Act was enacted in 1986 with the objective
rich ecosystems in the world, namely tropical rainforests, of providing for the protection and improvement of the
freshwater and brackish water wetlands, and marine environment. It empowers the Central Government
coral reefs. There has been progressively rising pressure to establish authorities charged with the mandate of
on the environment and the natural resources of Kerala preventing environmental pollution in all its forms
over the years from the high density of population as and to tackle specific environmental problems that
well as the State’s developmental needs. The serious are peculiar to different parts of the country. The Act
consequences of this pressure are becoming increasingly was last amended in 1991. This necessitated a State
evident. Development in Kerala has to ensure, utilising Policy Statement with the objective of complementing
the best of ongoing scientific and technological and supplementing the National Strategy and Policy.
development, that the demands on the environment do Kerala’s Environment Policy came into existence in
not exceed its carrying capacity for the present as well 2009. This Policy document provides a framework
as future generations. within which conservation and development can be
The State of Kerala may be justifiably proud of achieved simultaneously with a view to maximising
the high-level of popular awareness of environmental the quality of life for all in the State, optimising the
issues. Environmental consciousness is pervasive in ecological load on the natural systems as well as
Kerala society, and related issues are debated intensely building up the State’s economy while minimising
in the public sphere, extending well beyond the narrow environmental degradation.
confines of an intellectual elite. However, it is not One of the key achievements of the present
always evident that such consciousness or awareness is Government of Kerala has been its own particular
matched by an adequate scientific and technological addition to the raising of environmental awareness and
appreciation of the issues involved and the recourse to action through the Haritha Keralam Mission. As the
science to solve these issues. In the absence of adequate umbrella terms for a vast variety of local initiatives,
scientific inputs, there will be a slide into privileging the Haritha Keralam initiative has raised the bar on
conservation or even over-riding developmental efforts. environmental awareness building in the country.
It needs to be emphasised that even the notion of Specific interventions by the Mission are given at the
“carrying capacity” is not a static one and that science end of this section. We note here also that environmental
and technology can actively develop and enhance the work in the State will benefit from specialisation by
carrying capacity, including the biocapacity, of any various Government departments and agencies in their
given landscape or ecosystem. roles in environmental protection.
With a scientific outlook guiding all activities in Climate change and Kerala
the environmental sphere, many of the decentralised Climate change poses an emerging challenge to the
institutions envisaged and set up for environmental sustainability of social and economic development,
governance, such as Biodiversity Management livelihoods, and environmental management across the
Committees (BMC), may be provided specific and globe. The rise in greenhouse gases in the atmosphere
concrete agendas of work in monitoring various causes a rise in temperature, which in turn leads
specific aspects of the environment. This would be a to unpredictable weather, including flash floods
valuable way in which popular enthusiasm can be used and drought, and a rise in sea levels. India is highly
 ENVIRONMENT | 191

vulnerable to climate change because of high physical However, in many ways, climate action in Kerala is
exposure to climate-related disasters (65 per cent of the still in its infancy. While there is a SAPCC for Kerala,
country is drought-prone, 12 per cent is flood-prone, there is little buying into this Action Plan by various
and 8 per cent is susceptible to cyclones) and because Departments and agencies of the State Government,
India’s economy and population depend on climate- as well as other stakeholders. This is the inevitable
sensitive sectors such as agriculture, forests, tourism, consequence of consultant-driven processes that conduct
and fisheries. India started work on its action plan in proforma stakeholder meetings that rarely go beyond
2007 and the National Action Plan for Climate Change the superficial. Efforts to have a more systematic input
(NAPCC) was released in October, 2008. The NAPCC from academic and research institutions in Kerala into
set eight National Missions to respond to climate change; the second edition of the SAPCC based on adequate
these included National Missions on Solar Energy, knowledge capacity building and peer review, with the
Enhanced Energy Efficiency, Sustainable Agriculture, active participation of Government departments as well
Sustainable Habitat, Water, Sustaining Himalayan Eco- are still to bear fruit.
Systems, Green India Mission and Strategic Knowledge It is necessary in formulating Kerala’s response to
for Climate Change. These covered a range of actions, climate change that it meshes in appropriate fashion
including adaptation and mitigation. The principles with national policy. There is no case here for the
guiding the NAPCC include achieving a sustainable competitive evaluation of different States in their
development path while advancing economic and meeting the challenge of climate action. In a national
environmental objectives. economy, resource sharing and cooperation in sharing
Subsequent to the introduction of NAPCC in the ecological burden is the key and not a competitive
2008, State Governments were also encouraged to approach. While tapping local enthusiasm is important,
prepare their own State Action Plan on Climate slogans such as carbon neutrality of particular regions
Change (SAPCC) consistent with strategies in the or even local jurisdictions as small as a panchayat is
NAPCC. The first Kerala SAPCC was drafted by the not in accordance with national policies. But formal
Directorate of Environment and Climate Change adherence to national policy goals apart, such goals
(DoECC) with inputs from relevant Departments, are not even entirely coherent. Kerala’s significance lies
Agencies and Research Institutions. This was endorsed in the preservation and enhancement of its forest and
by the Government of India in 2014. It is proposed tree cover and the protection of its coastal ecosystem.
The adaptation of its ecosystems and landscapes to
to identify specific vulnerabilities and plan appropriate
global warming is the key challenge for Kerala, and
responses keeping those in focus. As the foremost
local mitigation efforts such as the carbon neutrality
impact of the changing climatic pattern relates to the
of particular panchayats is simply diversion from the
land and water resources, a system for monitoring will
real effort that is required, whatever its populist appeal.
be the first imperative. Thus the SAPCC will build
Regrettably, such local mitigation efforts are likely to
on the existing policies of the State Government by
attract some modest funding adding to their appeal.
taking into consideration the ongoing programmes
But most of such funding is part of the larger policy
and schemes being implemented at the State-level
initiatives from developed countries to persuade local
as well as the NAPCC. The SAPCC will have to be
jurisdictions to undertake commitments that have
integrated into the State-level planning process so
been rejected by the country at the policy level in
that the resource allocation of the implementation of
international climate negotiations.
identified adaptation measures can be made with the
objective to achieve the development goals of the State Environmental regulation in Kerala
Government. Adaptation is a key part of Kerala SAPCC In this section we deal with a number of specific aspects
and it is about taking action now to protect State from of environmental regulation in the State of Kerala.
the challenges caused by a changing climate. The Kerala Air quality monitoring
SAPCC developed by the Department of Environment The Kerala State Pollution Control Board monitors
and Climate Change, Government of Kerala aims to ambient air quality at 34 stations in the State. Of
address negative consequences of climate change and these, 28 stations come under the National Ambient
thus reduce risk associated with it. It is also envisaged Air Quality Monitoring Programme (NAMP). It
that climate change strategies need to be integrated into includes four new stations established in 2019 –
the development planning process in the State. Thiruvalla (Pathanamthitta), Kuttipadam (Ernakulam),
192 | KERALA DEVELOPMENT REPORT 2021

Perinjadoor (Thrissur), and Kalpetta (Wayanad). The (one station) and Ernakulam (two stations). In 2019-
State Ambient Air Quality Monitoring Programme 20, the Board established and commissioned CAAQMs
(SAMP) is implemented at seven stations, including at Kollam, Thrissur and Kannur. Various ambient air
a new station established in 2019 in Moovattupuzha. quality parameters are monitored continuously and
A PM 2.5 sampler was installed at each of the 19 Air displayed to the public.
Quality Monitoring stations in 2018-19. Seventeen Water quality monitoring
RDS and PM 2.5 samplers for ambient air quality A total of 128 water quality monitoring stations
monitoring and eight for measuring microbalance function under the National Water Quality Monitoring
were purchased in 2019-20. The latter were installed Programme (NWMP). Under this programme are
at district offices in Thiruvananthapuram, Alappuzha, included 72 stations in 48 rivers (major, medium and
Ernakulam, Wayanad, Kannur, Perumbavoor, Kollam, minor rivers), six in reservoirs, three in fresh water
and Thrissur. lakes, eight in estuarine lakes, three in canals, two
The Kerala State Pollution Control Board had in ponds, and 34 in ground water. The State Water
established and commissioned Continuous Ambient Air Quality Monitoring Programme (SWMP) operates at
Quality Monitoring Stations (CAAQMS) at Kozhikode 115 stations in 23 rivers and 23 stations in four lakes.

Box 12.1
Ban on Single Use Plastic
A ban on single-use plastic comes into force from January 1, 2020. With the Plastic Waste Management Rules
(2016) the State Government imposed strict restrictions on the use and sale of plastic carry bags less than 50
microns to facilitate collection and recycle of such plastic. The State Government has already taken steps with
regard to setting up of facilities for collection, segregation and disposal of all forms of waste, including plastic
waste. Even so, the uncontrolled and irresponsible usage of plastic has been posing environmental as well as
health hazards. Plastic items mostly end up in rivers and water bodies, making even recycling impossible. The
ecological system, and marine ecology in particular, have been badly affected. The grim situation was never
been more evident than after the floods in Kerala. Mountains of plastic debris were washed up on the shores
of the sea and lakes. The Government appointed an Expert Technical Committee to list the plastic items to be
banned and find substitutes for them. The Expert Technical Committee submitted its report to the Government
recommending partial ban on some items like PVC and flags, and has recommended regulating the use of a
many other items through establishing a return-and-earn scheme.

70
Micro gram per Cubic Metre

60
50
SO2(Microgram/C
40 ubic metre)
30
20 NOx(Microgram/C
ubic metre)
10
0 RSPM(Microgram/
Cubic metre)

Figure 12.1 Annual average values of air pollutants at 10 monitoring stations in residential areas of Kerala 2019
Source: Water and Air Quality Directory 2019, KSPCB
 ENVIRONMENT | 193

Figure 12.2 Annual average values of air pollutants at three monitoring stations in sensitive areas of Kerala 2019
Source: Water and Air Quality Directory 2019, KSPCB

Figure 12.3 Annual average values of air pollutants at 11 monitoring stations in industrial areas of Kerala 2019
Source: Water and Air Quality Directory 2019, KSPCB

Some of the rivers having high biochemical oxygen 12.4. It shows that BOD is highest for Periyar (higher
demand (BOD) values are Pamba river (during than the 2013 levels). Bharathapuzha and Chalakudy
Sabarimala festive seasons) and downstream rivers rivers showed an increase in BOD levels compared with
Karamana, Periyar, Bharathapuzha, Vamanapuram, 2013. Achenkovil, Kallada, and Pamba rivers show a
and Kadalundi. Coliform count at Munnattumukku in drop in BOD levels as compared to the 2013 level.
Karamana river, Kallayi bridge in Kallayi river, Pamba Biodiversity in India and Kerala
river, Purakatteri in Korapuzha river, Thodupuzha river India has done well in raising awareness about
and Munnar river are reported as being very high. biodiversity, which is an important thrust area
With regard to rivers, the BOD is plotted in Figure in several programmes of the Government. As a
194 | KERALA DEVELOPMENT REPORT 2021

2.5
BOD Micro gram per litre
2

1.5

0.5
2013(mg/
0 l)
2019-
20(mg/l)

Figure 12.4 Biochemical Oxygen Demand-levels at selected river stations, 2013 and 2019
Source: Water and Air Quality Directory 2019, KSPCB

Box 12.2
Surveillance of Sabarimala during Pilgrimage Season
During the Sabarimala pilgrimage season, the Pollution Control Board has to ensure quality of drinking water
in the pilgrimage area. For this purpose a laboratory is provided at Pamba. Besides continuous monitoring of
river water quality at different locations, sampling from effluent treatment plants are also done for ensuring
good environmental conditions. Ambient air monitoring and noise monitoring are also done at camp offices
setup at Sannidhanam, Pamba, and Erumeli with sufficient sampling as well as laboratory staff for this
purpose. The Board has conducted various awareness programmes among the public. Plastic carry bags,
canned food, and bottled water in the pilgrimage area are banned.

megadiverse country holding nearly 7-8 per cent of in India only 0.08 per cent of the species recorded are
globally recorded species while supporting 18 per cent in this category.
of the global human population on a mere 2.4 per A little more than two-thirds of India’s geographical
cent of the world’s land area, India’s quest for inclusive area is arid, semi-arid, or dry sub-humid on which
economic development while maintaining the integrity depend a vast majority of rural and semi urban poor for
of its natural capital is being pursued through various their livelihoods. Studies have repeatedly emphasised
programmes and strategies. that the rural poor and particularly women are severely
India has been investing a huge amount on impacted by the effect of environmental degradation on
biodiversity directly or indirectly through several soil fertility, quantity and quality of water, air quality,
development schemes of the Central and State forests, wildlife and fisheries.
Governments. This runs to Rs 70,000 crore per annum However, while biodiversity conservation is well
as against the estimated annual requirement of nearly understood, there is still much to be understood of the
Rs 1,09,000 crore. India has nearly two third of the economic value of biodiversity and how exactly it is to
population of wild tigers in the world. The population be valued and enhanced. Such confusion is of course,
of lion has risen from 177 in 1968 to over 520 in not merely restricted to Kerala or even India but is a
2015, and elephants from 12,000 in 1970s to 30,000 global problem.
in 2015. One-horned Indian Rhino, which was on the Biodiversity Management Committee (BMC) for
brink of extinction during the early twentieth century, conservation
now number 2,400. Further, while globally over 0.3 per Kerala State Biodiversity Board (KSBB) had
cent of total recorded species are critically endangered, constituted BMCs in all panchayats, municipalities and
 ENVIRONMENT | 195

corporations in 2012. After the local body elections, Major Initiatives and Activities of the Department
BMCs were reconstituted in 2015-16. In 2019-20 The Indian Constitution directs the State to “take
KSBB initiated constitution of BMCs in the remaining measures to protect and improve the environment and
upper two tiers of Panchayati Raj systems in the State to safeguard the environmental quality”. It also makes
namely, in block panchayats and district panchayats. it a fundamental duty of every citizen to protect and
The process of BMC constitution in 152 block and 14 improve the natural environment including forests,
district panchayats were completed in December 2019. lakes, rivers and wildlife.
In the 13th Five-Year Plan, it was aimed to strengthen The Directorate of Environment and Climate
the BMC through capacity development and policy Change in Kerala provides environmental education
support to sustainably manage the natural resources and awareness through their programmes like
at local - level. In 2017-18, 20 BMCs were selected, Paristhithikam and Bhoomitrasena Clubs. Paristhithikam
and in 2018-19, 28 model BMCs were selected (two focuses on conducting awareness and activity-oriented
from each district) and they are being empowered and programmes under the theme “Fight Against Air
provided financial support for focused projects. Pollution.” Presently there are 369 BMCs functioning
in various higher secondary schools and colleges all over
Implementation of People’s Biodiversity Register
(PBR)
Kerala to create and promote environmental awareness
The PBR is a comprehensive document on biodiversity among the students.
prepared with the support of Kerala State Biodiversity The major initiatives of Directorate of Environment
and Climate Change in 2019-20 were as follows:
Board and technical support groups (TSG). In 2019-
• Water quality monitoring programmes were
20, a total of 75 PBRs has been prepared. The process
conducted in different water bodies, including
of compiling PBRs of the locality along with associated
drinking water sources in the flood affected regions
traditional knowledge prepared by BMCs with
and its potability and/or suitability of use ascertained
technical preparation was completed in all 1,034 local
by selected BMCs.
bodies i.e. in 941 gram panchayats, 87 municipalities,
• Environmental awareness and action-oriented
and six corporations. environmental conservation programmes were
Impact of flood and natural disasters on conducted in different parts of the State under
biodiversity the title “Paaristhithikam” based on the theme
The Kerala State Biodiversity Board conducted a rapid “Combating Air Pollution.”
assessment of the impact of floods on biodiversity • A project titled “Grid connected solar powered
through BMC in 2018. This revealed that about charging station for electric vehicles” for the
771 different landscapes, including riverine, forest, promotion of sustainable energy in the automobile
plantations, and agricultural fields were affected. About sector was initiated.
287 varieties of agricultural crops, 1,053 types of flora • Documents on wetlands namely (i) Kavvayi,
and 695 types of fauna were affected. The major causes (ii) Kattampally, (iii) Kadalundy, (iv) Kottuli,
of disaster were found to include changes in land use (v) Pookode (vi) Ponnani estuary/Purathur
in wetland areas, removal of river bank vegetation, (vii) Chetuvai kayal (viii) Paravur (ix) Vellayani
construction activities on hill slopes and unsustainable was prepared by Centre for Water Resources
quarrying. As a followup to this, areas requiring Development and Management (CWRDM) for
attention was prioritised and 28 studies on the impact State Wetland Authority Kerala.
of floods and landslides on biodiversity and ecosystems The Kerala State Biodiversity Board established
with special emphasis on riverine rejuvenation were the Biodiversity Museum in Vallakkadavu,
awarded to research and development institutions and Thiruvananthapuram to create awareness among
universities across Kerala. As an outcome of this study, the people on the importance of biodiversity and
the Periyar, Pamba, Bharathapuzha and Chalakudy conservation. Biodiversity clubs play a great role in
river areas have been prioritised for recovery measures. furthering biodiversity education and experiences
The management and control of soil erosion at selected related to the nature and environment outside the class
areas of the Pamba river have been taken up. Areas room. A total of 150 biodiversity clubs were newly
vulnerable to landslides have been identified and the registered in 2019-20. Altogether there are 1,715
regeneration of riparian vegetation has been prioritised registered biodiversity clubs in Kerala. The Kerala State
as part of the recovery process. Pollution Control Board has taken initiatives for the
196 | KERALA DEVELOPMENT REPORT 2021

implementation of the Kerala Anti-microbial Resistance campaign created a strong foundation for sanitation
Strategic Action Plan (KARSAP) in the State. and waste processing activities by local governments.
Haritha Keralam Mission The basic requirements for treatment of waste at
The Haritha Keralam Mission, one of the components of source such as Material Collection Facilities (MCF),
the “Nava Kerala Mission” initiated by the Government Resource Recovery Facilities (RRF), Haritha Karma
in 2016, is a major programme aimed at environment Senas, household source-level treatment plants, and
conservation. The Haritha Keralam initiative is community composting units, have been provided to
concerned, in the first place, with the disposal of solid the local governments. The Green Protocol has become
waste and the cleaning of Kerala’s water bodies. This a part of social life and is implemented in 10, 010 offices
has a “hardware” aspect in the scientific and technical and institutions in the State, district, and block-levels.
infrastructure of such an initiative and a “software” Forty-five per cent of bio-waste in the State is treated
aspect in its thrust in changing the consciousness of scientifically through source-level treatment of waste.
people, particularly children, towards the disposal of These treatment systems were set up in 52.93 lakh
garbage and litter. Haritha Keralam envisages a litter- houses. In addition, 1,320 industrial-level biogas plants,
free Kerala in the near future. 210 community biogas plants and 2,117 community-
The Haritha Keralam Mission has three sub- level composting units were installed. Haritha Karma
missions (i) sanitation and waste processing, (ii) water Sena units were formed in 1,033 local governments
conservation and, (iii) agricultural development. with the participation of 32,003 members. The “Zero
The main focus areas of the Haritha Keralam waste on ground” project was initiated in 170 wards in
Mission are: 17 municipalities. A total of 1,220 tonnes plastic waste
1. To formulate methods for various levels of and 93.21 tonnes e-waste were collected and handed
coordination of Plans of local governments and over for recycling. Further, 2,350 scrap merchants
other departments to address the major issues in were registered in local governments. Thirty-seven
each district. Harithasahaya institutions have started functioning to
2. To ensure scientific, efficient and technical advice to give technical support for waste management facilities
local governments in order to attain practical and of local governments.
effective technical facilities. Material Collection Facility (MCF) centres and
3. To provide leadership in conducting activities that Resource Recovery Facility (RRF) centres were
ensure peoples participation and social inclusion for functioning in 1,339 and 157 local governments
creating “Haritha Keralam.” respectively between 2017-18 and 2020-21 (as on
Major interventions January 31, 2021).
Sanitation and Waste Processing. Launched Water Conservation Mission. The water conservation
on August 15, 2017, the “Freedom from Waste” mission envisions the renovation of existing water
Table 12.1 Physical achievements in sanitary waste management, 2017-18 to 2020-21 in number
Particulars 2017-18 2018-19 2019-20 2020-21
Number of local bodies where Haritha Karma Sena has been 521 530 931 1,033
formed
Number of members in Haritha Karma Sena 22,592 28,533 28,533 32,003
Material Collection Centres for inorganic waste treatment 300 448 1339 1339
Resource Recovery Facility Centres 39 138 157 157
Homes equipped with source waste treatment 19.94 31.19 43.57 52.93
(in lakh)
Collected plastic waste handed over for recycling (in tonnes) 200 95.08 130 1,220
Collected e-waste handed over for recycling 735.84 254.23 172.8 93.21
(in tonnes)
Note: Data for 2021 is up to January 31, 2021
Source: Haritha Kerala Mission
 ENVIRONMENT | 197

surfaces, ensuring pure and clean water in the local comprehensive projects at each stage, from planning to
areas, and the spreading of a new culture for water marketing, are envisaged to strengthen the agricultural
consumption. This seeks to facilitate good quality sector. A comprehensive farming initiative was
water supply system for drinking and irrigation. introduced by integrating various subsidiary agricultural
In this sub mission, the ponds, canals and streams activities such as animal husbandry, beekeeping,
across the State are being cleaned up, protected and poultry farming, goat rearing, and fish farming in a
conserved. Considering the topography and the mutually complementing manner. The production and
peculiarity of the landscapes, appropriate technology marketing of value-added products of the major crops
for water conservation is being adopted. In the hilly of Kerala such as paddy, coconut, vegetables, jackfruit,
terrains where the flow of water is fast and the land is and honey, has been carried out by establishing a chain
sloppy, small water harvesting bunds are constructed, of small and medium agro parks. Cultivation in barren
enabling the dammed water to penetrate into the lands is being promoted with the active participation of
soil. Centrally-sponsored schemes such as Mahatma Self-Help Groups (Swayam Sahaya Sangam) and Joint
Gandhi National Rural Employment Scheme have Liability Groups. The activities of the Agriculture Task
been effectively synchronised with the projects of the Force (Karshika Karma Sena) are being strengthened in
local self-governments for the conservation of water. all the local self-governing institutions.
The physical achievements of water conservation sub- The Haritha Keralam Mission, through its sub-
mission are given in Table 12.2. missions, has made significant interventions to protect,
clean and conserve our environment. It has created
Agricultural development. The agricultural awareness among the people to preserve environment
development sub-mission has a special thrust by rejuvenating water bodies and the scientific
towards organic farming. Systematic, scientific and management of waste.

Table 12.2 Physical achievements with respect to water conservation in number

Particulars 2017-18 2018-19 2019-20 2020-21 Total
Rivers rejuvenated (in km) 47 155 188 22 412
Streams rejuvenated (in km) 1,518 17,302 18,641 5,313 42,774
Wells recharged 18,252 37,109 6,837 723 62,921
Wells constructed 10,399 4,601 7,252 906 23,158
Wells renovated 6 4,625 9,317 6 13,954
Ponds renovated 4,221 11,529 9,437 54 25,241
Ponds constructed 98 13,877 4,651 257 18,883
Note: Data for 2021 is up to January 31, 2021
Source: Haritha Kerala Mission
198 | KERALA DEVELOPMENT REPORT 2021

Chapter 13
Local Governments
Decentralisation and Local Governments and the surplus from General Purpose Fund, is used as
in Kerala a source of funding for projects under the Annual Plan.
Introduction Second Phase of People’s Plan
Decentralisation of governance is one of the most Kerala has nearly two decades and a half of experience
important features of administration in Kerala. It affects in the field of people’s planning. There have been many
all spheres of life. Local governments in Kerala have studies and discussions in the State in this regard. In
been meaningfully empowered through a large-scale the light of these studies and discussions, some changes,
transfer of resources and administrative powers. Over aimed at revitalising the system of decentralised
the years, local governments have emerged as effective democratic governance, were initiated during the last
instruments for the formulation and implementation four years.
of development programmes and for coordinating Over the last four years, the scope and role of local
the work of various agencies involved in local area governments have increased as never before. This
development. The pivotal role played by them is clearly change is reflected in the timely preparation of plans by
evident in the exemplary work done by them during the local governments, the integration of plan and budget,
floods of 2018 and 2019 and the Covid-19 pandemic. timely implementation and better utilisation of funds,
Elections to local bodies in Kerala were conducted the formulation of innovative projects, increasing
in 2020. A newly elected leadership took over the reins allocation of funds to the productive sector, preparation
of administration at all tiers of local government. There of district plans and planning with the district as focus,
are 1200 local governments in Kerala, which includes and efficient disaster preparedness in the wake of
941 gram panchayats, 152 block panchayats, 14 natural disasters.
district panchayats, 87 municipalities, and 6 municipal New Initiatives and Major Policy Changes
corporations. Introduced in the 13th Plan
A prominent feature of Kerala’s decentralisation Modification of Plan guidelines and timely
is the devolution of untied funds in a formula based, preparation of local Plans
non-discretionary, and equitable manner. Untied The first year of the 13th Plan witnessed some major
funds are devolved to the local governments in three changes in the guidelines for the formulation and
streams as per the recommendations of State Finance implementation of local government Plans. An
Commission: important objective of the new guidelines was to
1) General Purpose Fund for meeting the expenditure simplify the procedures so that delays could be avoided.
on traditional functions and establishment expenses; On account of the cumbersome procedures that existed
2) Maintenance Fund for the maintenance of assets until then, Plan formulation and its approval took
of local governments including those transferred as more time than the time left for implementation,
part of decentralisation; and forcing local governments to rush through the process
3) Development Fund (Plan allocation) for meeting of implementation during the terminal months of the
the development expenditures. financial year. It was also responsible for the bunching
In 2020-21, the State transferred 3.5 per cent of its of payments during the month of March.
Own Tax Revenue as a General Purpose Fund and 6 per The introduction of new guidelines, which ensured
cent of its Own Tax Revenue as a Maintenance Fund to simplified procedures and comparatively fewer
local governments. Twenty five per cent of the State’s planning phases, resulted in early submission of Plans.
Plan outlay was devolved as a Development Fund. During the first year (2017-18), all local governments
Formula-based devolution has ensured that funds reach in the State could complete the process of formulation
every corner of the State, and more so its backward of their Annual Plans by June 15, 2017. This is an
areas. The transfer of resources has ensured that unprecedented achievement in the history of local-
adequate funds reach all areas, thereby giving a boost level planning in the State. Accordingly, the year also
to local area development and improving the lives of witnessed early beginning of the implementation
people. The surplus revenue that remains after meeting process, thereby getting around 10 months’ lead time
the establishment and non-development expenditure, for plan implementation.
 LOCAL GOVERNMENTS | 199

Based on the experience of the first year of the 13th Another important achievement of timely
Five-Year Plan, the Plan guidelines as well as the subsidy preparation of Plan is that the Annual Plan of the
guidelines have been modified for the remaining four local governments could be integrated with the budget
years. Modification of the guidelines became necessary presented and passed in March. Until the beginning of
to incorporate the experience gathered from the first the 13th Plan, the practice in local governments was
year and address issues raised by local governments. to integrate the Annual Plan with the Budget in the
Modified guidelines were issued sufficiently early so as middle of the financial year. By integrating it with the
to enable the local governments to get the Annual Plan Budget in March itself, the relevance and sanctity of
for 2018-19 approved well before the beginning of the Budget has also increased.
financial year. Accordingly, 1147 local governments in
Focus on urban issues
the State could complete the process of formulation of
The 13th Five-Year Plan of the State places special
Annual Plans for the year 2018-19 before April 1, 2018
emphasis on the issues arising due to rapid urbanisation
leaving a full year for Plan implementation.
in Kerala. It recognises the importance of developing
The process of formulation of the local Plans for
appropriate strategies and programmes for coping with
2019-20 began on October 2, 2018. The process was
challenges and opportunities thrown up by the process
initiated early so as to finalise the Plan proposals well
of urban growth. Keeping this in view, the Government
before the notification for the General Election to the
had in the 13th Plan, for the first time, set up a separate
17th Lok Sabha. Most of the local governments (1181)
set of guidelines for Plan formulation in urban local
submitted Plans before the notification was issued.
governments.
Even in the year 2020-21, in the midst of Covid-19
pandemic, 818 local governments were able to submit Preparation of district Plans
their Plans by March 31. Of the remaining local Another notable initiative introduced in 2017-18 is
governments, all but four submitted Plans by April 21. the preparation of District Plans by District Planning
The experience of the last four years shows that local Committees (DPCs). It is a constitutional mandate
governments have now realised the importance of the (Article 243 ZD) that the DPCs write District Plans
timely preparation of Plans. that design an integrated approach for the development
An early start in the year to Plan implementation of the district. All the DPCs in Kerala could complete
resulted in higher expenditure. In the past, money this task, following the detailed guidelines issued by
could be spent in the last months of the financial year the State Government and thereby ensure that the
as Plans were approved only at the end of the year. Now suggestions in the District Plans are incorporated in
that has changed and from the first month onwards, the the Annual Plans of local governments. DPCs have
plan expenditure is recorded. That is, Plan activity has been instructed to issue district specific guidelines
become a year-round process (Figure 13.1). every year based on the District Plans before the

Figure 13.1 Quarterly Plan expenditure figures of local governments, 2014-15 to 2019-20
200 | KERALA DEVELOPMENT REPORT 2021

process of preparation local Plans starts. Preparation of Appeal committee system restructured
District Plans is a major achievement in the history of A criticism that arose in the 12th Plan was that the
decentralised planning in Kerala. district-level appeal committees for projects rejected by
After fulfilling the constitutional mandate, the vetting officers were bureaucratic in their approach. The
DPCs in the State undertook the task of converting committee was reconstituted under the chairmanship
some ideas on large scale projects that emerged in of the Chairperson, DPC, to address this issue.
the District Plans into implementable projects that Productive sector outlay enhanced
jointly be implemented by local governments and From the beginning of the People’s Plan, it was
other agencies. Government introduced a scheme stipulated that a fixed percentage of normal share
titled “Incentivising District Plans” for promoting such under General Sector Fund should be set apart for
integrated projects in the District Plans. productive sector. However, this was done away with in
Change in approval system: First Plan approval, the beginning of 12th Five-Year Plan. The experience
then project appraisal in the first four years of the 12th Plan was reviewed
In the past, the Annual Plan was submitted to the DPC by the present Government when it assumed office
for its approval after the projects were scrutinised by in May 2016 and a decision was taken to restore the
the vetting officers concerned. The Annual Plan could mandatory minimum allocation with 20 per cent
only be submitted once the approval process for all under productive sector, for the Annual Plan 2016-17.
projects had been completed. Since there was pressure This was again revised in the beginning of the 13th Plan
to submit the Annual Plan, the vetting officers often and the mandatory minimum ceiling in the productive
faced a situation where it was not possible to address sector was enhanced to 30 per cent in the case of gram
the shortcomings of the projects and proposals were panchayats, block panchayats, and district panchayats,
approved in haste. To avoid this, it was decided to whereas in the case of urban local governments it was
first submit the Annual Plan to the DPC and then fixed at 10 per cent. This facilitated or encouraged the
conduct appraisal of projects. This change helped local governments in allocating and taking up more
to avoid delays in the approval of Annual Plans and projects in the productive sector who were until then
hasty project vetting. Vetting officers now get enough concentrating on infrastructure sector. This signifies the
time to scrutinise the projects in detail and rectify the emphasis given to enhance production as outlined in
deficiencies. This has resulted in improving the quality the Approach Paper to the 13th Plan (Table 13.1).
of projects significantly. Focus on special groups
More vetting officers and implementing Till the 12th Plan, it was stipulated that local
officers governments should set aside five per cent of the
One factor that hindered the smooth implementation Development Fund for the development of children,
of projects, especially in construction projects, was the the elderly, and persons with physical and mental
lack of facilities to scrutinise and approve projects in disabilities. In order to give higher priority to the
individual local governments. Normally, appraisal development of special needs groups it was decided in
(vetting) of a project is done by an officer who is senior the beginning of the 13th Plan to increase the allocation
to the implementing officer of the project. In the to 10 per cent and to include transgender persons
past, only the senior-most officer among the officers under special groups. Now, local governments have to
transferred in a sector was allowed to be engaged as the earmark 5 per cent for projects for the development of
implementing officer of projects in that sector. Because children, persons with physical and mental disabilities,
of this barrier, local governments were forced to send and transgender persons, and another 5 per cent for the
projects to other offices for vetting, which resulted in welfare of the elderly and for palliative care projects.
delays. For instance, construction projects of district Broadening the scope of subsidies
panchayats and corporations had to be scrutinised A notable change in the 13th Plan is that the subsidy
in the offices of the superintendent engineer or chief norms have been comprehensively revised. Scope
engineer. This barrier was removed by allowing more of subsidies that can be disbursed through local
implementing officers and vetting officers. The newly government Plans has been broadened by including
assigned implementing officers were also given treasury more items. Further, subsidy rates have been increased
codes (DDO code) to withdraw money from the and unified with the department rates. Local
Treasury. governments are permitted to take up those schemes’
 LOCAL GOVERNMENTS | 201

Table 13.1 Share of productive sector expenditure in the total expenditure under normal share of General Sector
Funds of local governments, 2015-16 to 2019-20 in Rs crore and per cent
Year Productive sector expenditure Total Expenditure Share of productive sector expenditure
under normal share of in normal share of in normal share under General Sector
General Sector Funds General Sector Funds expenditure (in per cent )
2015-16 242.43 2400.98 10.10
2016-17 373.42 2040.85 18.30
2017-18 660.46 2750.19 24.02
2018-19 674.26 3330.11 20.25
2019-20 454.92 2445.03 18.61
Source: Information Kerala Mission
which are not in the subsidy guidelines but exist in Rs 5 lakh to Rs 50,000. However, this does not apply
departments, in accordance with the Department to approved agencies such as the Parent Teachers’
guidelines. Besides, income ceiling of beneficiaries has Associations. Permission was granted to entrust works
been enhanced substantially. In the agricultural sector up to Rs 25 lakhs to such committees.
benefits can be given to marginal and small farmers. As a result of introducing competitive tendering,
For paddy cultivation benefits can be given to farmers there has been substantial increase in tender savings to
who have more than five acres of land also. For animal the tune of Rs 657.45 crore in the first three years of the
husbandry, dairy, and fisheries sectors the income limit 13th Plan, which helped the local governments to take
has been raised to Rs 5 lakh, and the income limit for up new projects (Table 13.2).
housing has been raised to Rs 3 lakh. For other schemes Table 13.2 Tender savings out of Plan and Maintenance
income ceiling has been enhanced to Rs 2 lakh for Funds of various tiers of local governments from 2017-
General category and Rs 3 lakh for Scheduled Castes 18 to 2019-20 in Rs crore
category. Income limit for persons of Scheduled Tribes
Year Tender savings
has been waived.
2017-18 239.60
Special window for innovative programmes
Another feature of 13th Plan was the introduction of 2018-19 212.23
“Special Window for Innovative Programmes” to design 2019-20 205.62
schemes that are innovative and relevant but cannot be Total 657.45
taken up by the local governments as per the subsidy Source: LSGD Engineering Wing.
guidelines. One of the key objectives of decentralised
Initiatives for enhancing people’s participation
planning is to analyse the specifics of local development
and providing technical support
problems and formulate appropriate solutions based on
Enhanced public participation in local plans is one of
the resource potential of that area. However, many of
the main objectives of the 13th Plan. With this objective
the projects thus emerged may not be implemented in
some reforms were initiated. Important among them
accordance with the existing subsidy norms. A District
are the decisions to increase the participation of
Level Expert Committee chaired by the district collector experts and use the services of volunteers. Planning
was constituted to examine and approve such projects. committees were formed in all the local governments
This committee is to examine the innovative projects of and the participation of volunteers and experts has
the local governments at all-levels and decide on approval. been ensured in these committees. It was also suggested
More investment through tender savings to use the services of a volunteer expert to assist the
There were widespread complaints in the construction local governments. Permission was also given to local
works being carried out by the Beneficiary Committees. governments to give an honorarium of Rs 5000 per
In order to address this issue and to ensure transparency month to the resource persons so appointed. Local
in the system, in the beginning of 13th Plan, governments were given complete freedom in selecting
competitive tendering was introduced in the execution resource persons.
of public works in the place of Beneficiary Committees. In order to make the planning process more
The financial ceiling of such projects was reduced from participatory, a “Gramasabha” portal was developed
202 | KERALA DEVELOPMENT REPORT 2021

to receive the views of public, including expatriate emphasis to areas that require core attention.
Keralites. Another initiative introduced for enhancing Enhanced outlay given to local governments
participation and for improving the knowledge content Plan outlay for the local governments has been
of the Plans prepared by the local governments is the gradually increased. The Government has implemented
formation of District Resource Centres (DRC). In the decision in the Action Taken Report on the
September 2019, the State Government directed all recommendations of the 5th State Finance Commission
DPCs to form DRCs consisting of professionals from that the Plan outlay should be enhanced by 0.50
development, research, and technical institutes as well per cent every year from 2017-18. The Government
as retired experts from Government departments. The decision to increase gradually the Maintenance Fund
main functions of DRC are: allocation from 5.5 per cent to 6 per cent of the State’s
a) to conduct studies in areas and topics required by the Own Tax Revenue has also been implemented. In
DPC as well as the local governments, b) give technical addition 3.5 per cent of State’s Own Tax Revenue was
advice so as to improve the knowledge content of the given as General Purpose Fund. Details on devolution
local government Plans, c) to prepare detailed project
of untied funds are shown Table 13.3 and Table 13.4.
report (DPR) on projects as required by the local
governments, d) to scrutinise the Plans prepared by Other Initiatives Introduced in 13th Plan
local governments and point out the weaknesses and Making audit of accounts up to date
suggest measures to improve them, e) study the model The audit arrears of local governments for the years up
projects and bring them to the attention of the State, to 2015-16 had been cleared through a special drive
and f ) revision of the District Plan every year. initiated by the State Audit Department in 2016-17
It is expected this will help in improving the quality and now audit of accounts is up to date. This was a
of Plans of the local governments and in turn give mandatory condition to seek performance grant

Table 13.3 Plan outlay (Development Fund) to local governments in Rs crore

Year State Allocation to local governments Percentage
Plan General sector Scheduled Tribal Total to State Plan
outlay Caste Sub- Sub- outlay
Normal Central Finance
share Commission Plan Plan
award
2016-17 24,000 2995.04 1310.06 1038.90 156.00 5500.00 22.92
2017-18 26,500 3371.57 1507.88 1172.05 176.00 6227.50 23.50
2018-19 29,150 3777.58 1739.56 1289.26 193.60 7000.00 24.01
2019-20 30,610 3604.62 2338.55 1353.84 202.99 7500.00 24.50
2020-21 27,610 3534.60 1964.15 1221.15 183.10 7158.00* 25.92
Note: *Includes Rs 255 crore for the World Bank aided project of Kerala Solid Waste Management Project (KSWMP)
in municipalities.
Source: Budget Documents, various years.
Table 13.4 Devolution of Maintenance Fund and General Purpose Fund to local governments in Rs crore
Year Maintenance Fund General Purpose
Non-Road Road Total Fund
2016-17 645.93 1291.86 1937.79 1233.14
2017-18 655.03 1528.41 2183.44 1364.66
2018-19 703.16 1640.72 2343.88 1426.71
2019-20 822.34 1918.78 2741.12 1626.09
2020-21 883.15 2060.68 2943.83 1717.23
Source: Budget documents, various years.
 LOCAL GOVERNMENTS | 203

suggested by 13th Finance Commission. As per the assuming office to plan future programmes and
mandate of the 13th Finance Commission, for receiving priorities. It will help in identifying model projects,
Performance Grant the local governments will have to learn from the functioning of exemplary local
submit audited accounts that relate to year not earlier governments, learn from past experiences, and acquire
than two years preceding the year in which the local new knowledge. The data collection and compilation
governments seek to claim the performance grant. responsibilities will be handed over to the Directorate
Preparation of disaster management plans of Economics and Statistics. It is planned to conduct
Natural calamities such as floods, coastal erosion, this round every five years. This will be a rich source
drought, and landslides pose serious challenges to the of information for all the researchers and planners in
State and its economy. To mitigate the impact of such future.
disasters and to improve the disaster preparedness, for Good governance initiatives
the first time in the country, gram panchayats and urban Some of the reforms initiated aimed at good
local governments were directed to prepare local disaster governance are given below.
management Plans. The Disaster Management Plan of
Common service for Local Self Government
the local government has the following components:
Department. The Integrated Local Self Government
1) Local government profile
Department has been formed, unifying five departments
2) Hazard and vulnerability profile
of Local Self Government, with a view to strengthen
3) Capacity and resources of the local government
local government system and better service delivery.
4) Response Plan
It is expected that the functioning of various local
5) Preparedness, mitigation, and community resilience
governments now comes under different departments
plan.
can be better coordinated. The existing Departments of
The local governments have to include projects of
Panchayats, Urban Affairs, Rural Development, Town
disaster management and mitigation in their Annual
Planning, and Engineering will come under the new
Plans considering the susceptibility of the respective
local governments to natural disasters as well as their umbrella.
existing capacity to tackle them. All gram panchayats, Integrated Local Governance Management System.
municipalities, and corporations have prepared Disaster Integrated Local Governance Management System
Management Plans in 2019-20. (ILGMS), a comprehensive software developed by the
Decentralisation round survey Information Kerala Mission was deployed across 150
Even though two decades have passed since the gram panchayats in October 2020 to ensure greater
decentralisation programme was launched in Kerala, the transparency, accountability, accuracy, punctuality and
State has not succeeded in developing a data collection technical supervision in providing various services to the
and dissemination system capable of supporting the citizens. It is a vision for typical governance management
local-level planning in Kerala. Information Kerala with a suite of satellite software applications integrated
Mission collects data on Plan schemes while the local to a stem software application (workflow platform).
governments themselves collects data on development The project is being piloted in Chemmaruthi Gram
sectors and uses it for local-level planning. However, Panchayat in Thiruvananthapuram District. At present,
there is a huge data gap with respect to the achievements only applications for marriage registration and name
as well as effectiveness of local Plans. registration in the case of birth certificate are open for
Considering that the most appropriate time for e-filing through the Sevana software intended for birth,
initiating a round of data collection is when the period death, and marriage registrations. Documents need to
of the incumbent elected representatives ends and new be produced even if they are e-filed. However, with
representatives assume office, the Government has the introduction of the new software, all services such
decided to conduct a round of data collection called the as birth, death, marriage registration, name addition
“Decentralisation Round” survey, where data regarding and correction can be applied for without having to
the achievements of local governments with respect go directly to local governments. The services will be
to subjects dealt by them will be collected based on a available online in a timely manner.
questionnaire. This data collection will not only help Local governments in Kerala and ISO standards. The
in assessing the functioning of the incumbent local approach paper for the 13th Plan states that all local
governments but also help the elected representatives governments in Kerala would have to meet the ISO
204 | KERALA DEVELOPMENT REPORT 2021

standards. This has now almost been fully accomplished government, will have experts in the aforementioned
and local governments in Kerala are in the forefront fields as members. The Group is to include members
of delivering quality services to the people. Of the from the Biodiversity Management Committee,
941 gram panchayats in Kerala, 939 gram panchayats, Disaster Management Committee, and members of the
and all block panchayats have achieved international public, including volunteers who were part of rescue
quality certification ISO 9001:2015. Remaining gram and relief operations in floods. The respective local
panchayats, municipal corporations, municipalities, government secretary is the convenor of the Group.
and district panchayats are expected to adopt the ISO Further, local governments were directed to draw
for the current fiscal year. lessons from the floods and pay particular attention to
ISO 9001:2015 is an international certification for spatial planning at the micro-level to mitigate the impact
quality management systems. local governments have of such disasters in future. The local Spatial Plan will be
strived to achieve this international recognition because on the basis of the District Plan already drawn. The
they have a clear understanding that only with a high- idea is to come up with comprehensive plans for spatial
quality system can they provide timely services to the rearrangement or development which is essential for
people. The ISO certification is given only if the system sustainable development in general and rehabilitation
is designed such that people receive uninterrupted of people who live in ecologically highly sensitive areas
services and the local bodies provide people-friendly and prone to flooding and landslides. Such rethinking in
accurate front-office facilities, a computerised record the spatiality of development at the local-level will have
keeping system that can create records in a very short to be in agreement with larger master plans which the
time, and an orderly office system. The work done by State Government would be formulating for different
local governments to achieve international certification macro-regions of the State such as Western Ghats,
is a major step towards the goal of providing a quality Kuttanad, and Periyar river system.
service to the people and being a people-friendly The Government also directed all local governments
organisation. to form four Emergency Response Teams (ERTs) in
Floods and Local Governments each local government to lead the rescue and relief
Local governments were at the forefront Governmental operations and give first aid in the wake of a disaster.
efforts in the aftermath of floods of 2018 and 2019, They also had to identify community centres that
particularly in respect of rehabilitating people and could be converted into relief camps and ensure the
coordinating relief efforts. All local government staff maintenance of such centres, and ensure that they
from gram panchayat to municipal corporation-level were equipped with toilets, lights, and other facilities.
were instructed to work in rescue and relief operations Considering the intensity, frequency, and uncertainty
and, most importantly, to start using their funds as they of natural disasters ravaging the State, the Disaster
deemed fit. This helped the teams for disaster mitigation Management Plan is a novel and necessary measure
carry out their mission effectively. taken by the Government, and is worth emulating all
The floods of 2018 were worse than the floods of over the country.
2019. The local governments were permitted in August In the Annual Plan 2019-20, Rs 250 crore was
2018 to reorient and rearrange their 2018-19 Plan so as allocated as assistance to the local governments
to address the critical problems that required immediate seriously affected by the floods of 2018. A committee
attention. Relaxation in sectoral norms was allowed. was constituted to select the local governments eligible
The provision given for liberal rearrangement of the for assistance and decide on the criteria to distribute
local Plan helped the local governments to mobilise this fund among the selected local governments.
enough money for repairing and renovating public As per the recommendation of the Committee, the
assets such as roads, bridges, drinking water schemes, Government decided to keep 15 per cent of the fund,
and public buildings. that is, Rs 37.5 crore, for distributing among the local
In the backdrop of the natural disasters, especially the governments affected by landslips and landslides and
devastating floods, local governments were instructed the remaining fund of Rs 212.50 crore be distributed
to form a new working group for “Biodiversity among the selected flood-affected local governments.
Management, Climate Change, Environmental Accordingly, 240 gram panchayats, 33 municipalities,
Protection and Disaster Management.” The Working and 3 Corporations received Rs 169.04 crore, Rs
Group, to be chaired by heads of the respective local 35.85 crore and Rs 7.61 crore, respectively as special
 LOCAL GOVERNMENTS | 205

incentives. Subsequently the Government also issued Rural local governments (RLGs)
guidelines for the utilisation of this funds wherein it The Commission recommended giving grants to rural
was stipulated that the fund should be primarily used local governments under two streams, namely (i) Basic
for livelihood generation projects benefitting mainly Grants and (ii) Tied Grants. 50 per cent of the total
those who have lost their livelihood due to the floods grant will be Basic Grants and 50 per cent will be the
of 2018. It also permitted that the fund can be used for Tied Grants. Total allocation to Kerala is Rs 1628
restoration of public assets lost in the floods and also for crore. As per the recommendation, the grants should
repair and maintenance of rescue shelters in the wake be distributed in conformity with the following bands
of floods. of 70-85 per cent for village panchayats, 10-25 per
Role Played by the Local Governments in Tackling cent for block panchayats and 5-15 per cent for district
Covid-19 panchayats. Kerala decided to apportion the funds
Among the Indian States, Kerala was the first State among the village, block, and district panchayats in the
affected by Covid-19. The State Government’s prompt ratio of 75:12.5:12.5. The inter se distribution among
response to the pandemic in rallying local governments the rural local governments has been done, as suggested
along with the Health Department has been noticed by the 15th Finance Commission, on the basis of the
globally. Social investments in rural healthcare, accepted recommendations of the latest State Finance
universal education, decentralisation of powers and Commission (that is, 5th State Finance Commission)
resources, and women empowerment are cited widely The Basic Grants are untied and can be used by
as the reasons that helped Kerala to fight against the rural local governments for location-specific felt needs,
coronavirus. except for salary or other establishment expenditure.
The Tied Grants are to be used for the basic services
Reorientation of Local Government Plans (2020-
21) in Accordance with the Award of 15th Central of (a) sanitation and maintenance of open-defecation
Finance Commission free (ODF) status, and (b) supply of drinking water,
The 15th Central Finance Commission has made rain water harvesting, and water recycling. The local
significant departures from the previous Central governments shall, as far as possible, earmark half of
Finance Commissions in its recommendations these tied grants each to these two critical services.
particularly in urban areas. The salient features of 15th However, if any local government has fully saturated
Finance Commission Award to local governments and the needs of one category, it can utilise the funds for
its implications in Kerala are summarised below. the other category.
As per the accepted recommendations of the Urban local governments (ULGs)
15th Finance Commission, the total grants for local As described earlier the Commission recommended to
governments to 28 States for 2020-21 has been fixed provide grants to urban local governments under two
at Rs 90,000 crore, of which Rs 60,750 crore is categories: (a) fifty Million-Plus urban agglomerations/
recommended for rural local governments (67.5 per cities (including seven Urban Agglomerations (UA) in
cent ) and Rs 29,250 crore for urban local governments Kerala), and (b) all other cities and towns with less than
(32.5 per cent ). This allocation is 4.31 per cent of the one million population. Of the total grant (Rs 29,250
divisible pool estimated by the commission for 2020- crore) allocated to urban local governments across
21 against 3.54 per cent (Rs 87,352 crore) of the India, Rs 9229 crore is for the Million-Plus cities and
divisible pool for 2019-20. Out of the total amount, Rs Rs 20,021 crore for the others.
2412 crore (2.68 per cent) has been recommended by Category 1: Million-plus urban agglomerations/
the Commission to the State during the year 2020-21. cities. There are 50 million plus Urban Agglomerations
In the case of rural local governments the (UA) in the Country (as per Census 2011). A portion
Commission has recommended to give grants to of funds under this category (Rs 4400 crore out of Rs
all tiers of panchayats including intermediate and 9229 crore) has been recommended for improving air
district panchayats. Where as in the case of urban quality. However, no fund is set apart for Kerala under
local governments the Commission recommended to this stream - as ambient air quality is not a problem
provide grants to cities under two categories for the first in the seven, Million-plus Urban agglomerations
time: (a) fifty Million-Plus urban agglomerations/cities, identified in Kerala (The seven UAs in Kerala are
and (b) all other cities and towns with less than one Thiruvananthapuram, Kollam, Kochi, Thrissur,
million population. Kozhikode, Kannur, and Malappuram).
206 | KERALA DEVELOPMENT REPORT 2021

Box 13.1
Local Governments and the Covid-19 Pandemic
Local governments played a key role in containing as well as tackling the Covid-19 pandemic, some of which
are described below (status given is as of June 30, 2020).
1. Establishing and managing community kitchens during lock down: local governments in association with
Kudumbashree started 1374 community kitchens to ensure food for needy especially migrant workers,
job losers, aged, palliative care patients, stranded persons, peoples who admitted in quarantine destitute,
etc. Over 95 lakh food parcels have been distributed from here. Of this, 82 lakh parcels were distributed
free of cost.
2. Cleaning and disinfection activities: As part of cleaning activities, 76,067 public places and offices were
disinfected. For this, 86,470 person-days were used. 6.91 lakh person-days were used as part of pre-
monsoon cleaning operations.
3 Organising and running “Break the Chain” social distance campaign and awareness programmes:
Awareness programmes for the elderly, the disabled and the sick have reached 24 lakh families. Special
awareness programmes for families belonging to Scheduled Castes and Scheduled Tribes were extended
to 9.49 lakh families. A total of 17,122 people participated in the awareness programmes conducted for
the inmates staying in various care homes in the State.
4 Providing accommodation, food, and other essential support to migrant (“guest’) workers: Around 3,032
camps were organised for guest workers, and 46,657 inmates were present here at various times. 173
camps were set up for the poor, where 4,549 people were rehabilitated at various times.
5 Managing the coordination of home quarantine, counselling, and isolation.
6 Setting up institutional quarantine to manage those, who returned to the State from other States and
abroad.
7 Setting up and managing Covid First Line Treatment Centres (CFLTC): The Government has decided
to set up CFLTCs in all local governments in view of the increasing number of Covid positive patients in
the State. So far 1437 CFLTCs have been identified out of which 1,20,832 beds have been set up.
8 Engaging of personnel in health institutions managed by local governments: During this period, 463
doctors, 290 nurses, 308 paramedical staff, 388 junior health inspectors, 1779 cleaners and 793 other
personnel were posted in various health institutions managed by the local governments.
9 Purchase of medicines and other equipment to the hospitals run by the local governments.
10 Distribution of free medicines: During this period, medicines were delivered to 5.83 lakh people at their
homes.
11 Implementing local economic plans to help the people who lost jobs and plans for increasing food
production and self-sufficiency in the field of agriculture.
12. Providing arrangement for local dissemination of online schooling internet connectivity.

The balance fund (Rs 4829 crore) has been 339 crore as given in Table 13.5.
recommended for improving conservation of Category 2: Urban local governments other than
supply and management of water and efficient solid million-plus cities. For urban local governments
waste management, which are critical for planned other than in Million-Plus cities across India, the
urbanisation. For water and solid waste management, Commission recommended an allocation of Rs 20,021
the Ministry of Housing and Urban Affairs (MoHUA), crore consisting of two equal parts – 50 per cent Basic
as the nodal ministry, shall, in consultation with the Grants and 50 per cent Tied Grants. The Basic Grants
State Governments, develop city-wise and year-wise are untied and can be used by urban local governments
targets for 2020–25 and recommend disbursal of grants for location-specific felt needs, except for salary or
to such cities. The targets will be improvements over other establishment expenditure. However, Tied
the base year to provide incentives to make up for any Grants are to be spent for (a) drinking water (including
slippage in performance during the years succeeding rainwater harvesting and recycling), and (b) solid waste
2020-21. Allocation to Kerala under this stream is Rs management. These urban local governments shall
 LOCAL GOVERNMENTS | 207

Table 13.5 Allocation to Million-Plus Urban Planning Committees concerned to constitute a Joint
Agglomerations in Kerala Planning Committee (JPC) with the elected head of
the principal local government as the Chairperson of
Urban Agglomeration Population Allocation in
(in lakh) Crore
JPC and the Chairpersons of other local governments
(based on within the UA area and Secretaries of all local
population) governments concerned being the members of the JPC.
Thiruvananthapuram 16.8 47 The guidelines issued by the Government stipulate
Kollam 11.1 31 mandatory spending of a portion of the allocation in
Kochi 21.2 59 areas other than the principal local government of UA.
Thrissur 18.6 52 Undoubtedly, the 15th Finance Commission has
Kozhikode 20.3 57 enhanced allocations for local governments across India
Kannur 16.4 46 to 4.31 per cent of the divisible pool, as against 3.54 per
Malappuram 17.0 47 cent recommended by the 14th Finance Commission
Total 339 for 2019-20. As a result of this, allocation to Kerala has
increased as compared to 2019-20. However, flexibility
earmark one half of the Tied Grants each of the above in spending is reduced to a considerable extent. In a
two critical services. However, if any local government major departure from the 14th Finance Commission
has fully saturated the needs of one category, it can that gave bulk of the funds as “Basic Grant” and allowed
utilise the funds for the other category. all expenses related to basic civic services including
Allocation to Kerala under Category 2 is Rs 445 maintenance of community assets and roads in the
crore. The inter se distribution has been done, as case of both rural and urban local governments under
suggested by the 15th Finance Commission, on the Basic grants, the 15th Finance Commission has made
basis of the accepted recommendations of the latest all the grants to the million-plus cities as conditional
State Finance Commission (that is, 5th State Finance (tied grants), and 50 per cent of the grants to other
Commission). The lone Cantonment Board in Kerala cities and rural local governments as conditional (tied
such as Kannur Cantonment Board was provided with grants). Further, only two critical services, water and
funds from the allocation under Category 2. sanitation, are allowed under tied grants. All these goes
Reorientation of Local Government Plans (2020-21) against the spirit of decentralisation and empowering
At the time of preparation of State Budget for the local governments.
year 2020-21, the details of 15th Central Finance Way Forward
Commission award to local governments were not Local governments in Kerala have become model
known. Therefore the local governments were provided institutions of governance. They have risen to the challenges
with a tentative allocation in the budget and directed they have faced. Functional and financial autonomy has
to prepare Annual Plans well before the start of the ensured effective decentralisation of governance.
financial year on the basis of this tentative allocation Local governments have made effective use of the
and as per the 14th Finance Commission guidelines. positive features of decentralisation to make progress in
After the 15th Finance Commission Report came various spheres of development. The experience of the
in June 2020, the Development Fund allocation to last 24 years shows that many local governments have
local governments was modified incorporating the created successful models in various fields.
15th Finance Commission allocation. Subsequently The main objective of local-level planning in
local governments were directed to reorient their Plan the future should be to address regional inequalities,
in accordance with the revised allocation and as per the improve the living standards of the poor, especially
15th Finance Commission guidelines. marginalised sections such as people of the Scheduled
The guidelines issued by the Kerala Government Castes, Scheduled Tribes, and fishworkers and create
for the utilisation of 15th Finance Commission award employment opportunities. It is also necessary to
stipulate preparation of a CFC Sub-Plan by the local increase production and productivity, particularly in
governments. It was quite a challenge to prepare Plans the field of agriculture and allied sectors and industries.
for an UA area instead of the usual practice of preparing Small scale industries need to be encouraged. The urban
separate Plan for each local government that comes local governments should be empowered to address
under a UA. For the purpose of preparation of Plan for the challenges and problems that arise because of fast
the UA area, Kerala Government has asked the District urbanisation. 
208 | KERALA DEVELOPMENT REPORT 2021

There needs to be a positive change in the 19 urban agglomerations. The highest number of towns
approach and outlook of the Women Component is in Thrissur district (135), which accounts for more
Plan in accordance with the possibilities and needs of than 25 per cent of total towns in the State. Around 60
each region. Special attention is also needed for the per cent of the towns are located in Thrissur, Kannur,
development of children, the elderly, and persons with Ernakulam and Kozhikode districts. Urban population
disabilities. The quality of public services should also has crossed one million in eight districts. Of these,
be improved. Ernakulam has the highest urban population, closely
Efforts have been taken to improve public followed by Thrissur, Kozhikode, and Malappuram
participation in local-level planning; special attention districts. The total urban population of these four
needs to be paid to these efforts. districts together constitutes more than 50 per cent of
Efforts taken in the 13th Plan to strengthen the urban population in the State.
District Planning Committees need to be continued. The urban population growth index in 2001-2011
Local-level spatial plans should be prepared and a increased in all districts other than Idukki. Malappuram
system should be devised to provide reliable local-level district shows a significant increase in the urban
statistics required for planning. The district plan should population growth index followed by Kollam, Thrissur,
be constantly updated and a system of formulating local and Kasaragod. Wayanad has the lowest index value.
plans in line with district plans should be strengthened. Spatial Planning in the State
Urban Development Initiatives The Town and Country Planning Department under
Kerala’s development is not characterised by great the Local Self Government Department is entrusted
disparities between urban and rural areas. The absence with the task of preparing Master Plans and Integrated
of great disparities is because public policy is so District Development Plans, with special emphasis on
targeted; public policy has been helped in this regard spatial planning, to promote orderly development in
by spatial configuration of the urban and the rural the State. The Department focuses on various aspects
in Kerala. This particular spatial geography of “rural- of human settlement planning and development, such
urban continuum” is of special significance in Kerala’s as housing, environment, transportation, mobility
development. plan, slum improvement, and infrastructure projects.
The spatial pattern of the settlement system Presently, master plans for various selected towns and
characterised by dispersed but interconnected, linear municipalities are under preparation. In Phase I, 32
but densely agglomerated stretches, differentiates municipalities/towns were selected for preparation
Kerala from the rest of the country. There is less of master plans. Of them, ten master plans have
distinction between an urban area and a rural area here been published, final draft prepared for nine towns,
than anywhere else in the country. The urbanisation of and the remaining is being prepared. In Phase II, 31
dispersed settlements, characterised by the conversion municipalities/towns were selected for the preparation
of agricultural land, ribbon development along major of master plans, of which nine master plans have been
roads, and the concentration of commercial built-up published, final draft prepared for eight towns, and the
spaces at road junctions are some of the characteristics remaining is being prepared. In Phase III, 24 towns
of urban transition in Kerala. were selected; final draft prepared for five towns and
the remaining in this group are under preparation.
Urbanisation in Kerala The Integrated District Development Plan for the
In Kerala, the urban population was 1,59,34,926 district as a whole – a multisectoral, multilevel and a
persons or 47.7 per cent of the total population of long-term Plan – was first prepared for Kollam district
the State according to Census of 2011. Kerala is the on a pilot basis. The districts of Alappuzha, Thrissur,
third most urbanised State in India and also one of Idukki, Palakkad, Kannur, Kozhikode, and Wayanad
the fastest urbanising State in the country. Between were selected in the subsequent phase and preparation
2001 and 2011, there was a 21.74 per cent increase in of Plans in these districts is under way.
urban population in the State. The district in which the
proportion of urban population to total population is Major Urban Development Initiatives
in the 13th Plan
highest is Ernakulum (68 per cent). The share of urban
population is lowest in Wayanad (3.9 per cent). Urban housing
The urban sector of Kerala consists of six municipal Pradhan Mantri Awas Yojana-Urban (PMAY-U) is a
corporations, 87 municipalities, 461 census towns and centrally-sponsored scheme jointly implemented by
 URBAN DEVELOPMENT | 209

the State Government and urban local governments issues and initiated the Livelihood, Inclusion and
to address the housing requirement of urban poor Financial Empowerment (LIFE) Mission as a flagship
including slum dwellers. The aim of the scheme is to programme for providing houses to the houseless and
provide “Housing for All” by 2022. There are four landless in the State. PMAY-U was converged with the
components under PMAY-Urban scheme. Under the LIFE Mission and is implemented as PMAY (U)-LIFE.
major component, beneficiary-led construction of The assistance under LIFE Mission is Rs 4.00 lakh for
new houses, 493 detailed project reports (DPRs) of 93 beneficiaries. For Scheduled Tribes residing in remote
urban local governments including three development hamlets, Rs 6.00 lakh is provided as assistance.
authorities namely, Greater Cochin Development Atal Mission for Rejuvenation and Urban
Authority (GCDA), Goshree Islands Development Transformation (AMRUT)
Authority (GIDA) and Thiruvananthapuram Atal Mission for Rejuvenation and Urban
Development Authority (TRIDA) were approved by Transformation (AMRUT) was started by Government
the Ministry of Housing and Urban Affairs (MoHUA), of India in June 2015. The period of the project was five
Government of India. Based on the DPRs, construction years from 2015-16 to 2019-20. The scheme addressed
of 1,02,229 dwelling units was approved, of which the basic challenges of urban physical and institutional
84,550 had started and 54,510 are completed as on infrastructure development covering components
March 23, 2021. The details of PMAY-U housing of water supply and sewerage, septage, storm water
scheme is shown in Table 13.6. drainage, urban transport, green spaces and parks. Nine
Under the component, affordable housing in towns were selected from the State for funding under
partnership with public and private sectors, six detailed AMRUT. This included six municipal corporations and
project reports consisting of 774 units have also been Alappuzha, Palakkad and Guruvayoor municipalities.
approved, of which 352 had started and 240 are Under the scheme, administrative sanction was accorded
completed. Credit Linked Subsidy (CLS) component for 1,008 projects amounting to Rs 2277.23 crore,
aims at expanding institutional credit flow for housing of which, 638 works have been completed and 339
needs of urban poor. CLS is provided on home projects are under various stages of execution. Kerala
loans taken by eligible urban poor for acquisition or was ranked 7th in reform implementation in 2019-20
construction of houses. The identified beneficiaries for its performance over four years of the programme
under CLS is 25,656, of this subsidy released to 15,608 and received Rs 59.52 crore from Government of India
beneficiaries as on March 23, 2021 for reform accomplishments in the scheme. Moreover,
PMAY-U, being a centrally sponsored scheme, credit rating was completed in all the nine mission cities.
the unit assistance for house construction from Under AMRUT, water supply project covers almost 70
Government of India is Rs 1.5 lakh. In the light of the per cent of the total project cost and thereby 24*7 water
prevailing high wage rates and cost of building materials supply have been ensured in mission cities. The progress
in the State, this unit cost is too little to undertake the of work of the mission is shown in Table 13.7.
task. The State Government realised that this amount Smart Cities Mission
would not be sufficient to give momentum to housing This is a major infrastructure development programme
scheme in the State. The Government adopted a started in 2015 by Government of India to promote
comprehensive approach for addressing the housing cities that provide core infrastructure and a decent

Table 13.6 Physical achievements of Pradhan Mantri Awaas Yojana-Urban housing scheme, Kerala, 2016-17 to
2020-21 in number
Year Units approved Units started Units completed
2016-17 18,845 3517 15
2017-18 42,791 20,460 2475
2018-19 26,947 31,740 13,250
2019-20 3181 19,945 32,705
2020-21 10,465 8888 17219
Total 1,02,229 84,550 65,664
Source: Kudumbashree, Government of Kerala
210 | KERALA DEVELOPMENT REPORT 2021

Table 13.7 Progress of AMRUT project in Kerala in number

Urban local Total AS TS Tendered Work Work Work
governments projects accorded issued awarded started completed
Thiruvananthapuram 270 270 270 270 263 261 200
Kollam 60 60 60 60 56 54 30
Alappuzha 195 195 192 192 184 184 123
Kochi 98 98 98 98 95 94 66
Thrissur 110 110 109 109 108 102 70
Palakkad 153 153 153 152 151 144 82
Guruvayur 34 34 33 33 33 29 10
Kozhikode 50 50 50 50 50 50 35
Kannur 38 38 38 38 37 37 22
Grand Total 1008 1008 1003 1002 977 955 638
Note: AS is Administrative Sanction and TS is Technical Sanction
Source: State Mission Management Unit (SMMU), Government of Kerala

quality of life to its citizens, a clean and sustainable and reconstruction of public toilets, installation of
environment, and adopt smart solutions for drinking water kiosks at 25 locations, construction of
infrastructure development. Kochi was selected in smart bus shelters, redevelopment of Palayam market,
the first phase and Thiruvananthapuram in the third construction of multi-level car parking at Palayam and
phase of selection of cities. The total estimated project Thampanoor, rain water harvesting, development of
cost of the Smart City Kochi is Rs 2076.00 crore and integrated command and control centre, integrated
Thiruvananthapuram is Rs1538.20 crore. social housing complex project at Rajaji Nagar,
The Smart City project of Kochi aims at a planned and improvement of public health centre at Rajaji Nagar,
integrated development of Fort Kochi-Mattancherry rehabilitation block for TRIDA, construction of open
area by improving the civic infrastructure. Under the air theatre and park at Putharikandam, redevelopment
scheme, 43 projects are envisaged, of this, 7 projects of Ponnara Sreedhar park and children’s park at
have completed, 28 projects are under implementation, Kerala Water Authority, smart roads, construction of
2 projects are in tendering stage, 4 projects to be tendered interactive information kiosks are some of the projects
and two projects are under DPR preparation. Integrated that are in the final stages of implementation as on
command control and communication centre, smart September 2020.
roads in Ernakulam and West Kochi, implementation Sanitation
of smart LED lighting, construction of new block at Suchitwa Mission is the nodal agency for evolving
Fort Kochi Taluk hospital, Mattanchery Women and implementation strategy and providing technical
Children hospital, cancer block for General Hospital, support to the State Government and local governments
roof top solar project, Intelligent Traffic Management in developing solid and liquid waste management
system, and distribution of waste bins are some of the projects and policies. As regards rural areas, the State
initiated projects as on September 2020. The system of is Open Defecation Free (ODF) from November 1,
“Smartcard” was started in 2017-18. Implementation 2016 onwards and is focusing on ODF Sustainability
of Integrated Traffic Management System (ITMS) and ‘‘ODF Plus’’ activities. In urban areas, construction
in Kochi worth Rs 26.90 crore was inaugurated on of Individual Household Latrines (IHHLs) target has
October 19, 2020. been achieved by constructing 29,578 IHHLs. 92
The Smart City project of Thiruvananthapuram urban local governments except Cochin Corporation in
envisages 43 projects, of this, 9 projects have completed, the State have been declared as Open Defecation Free
30 projects are under implementation, 3 projects to (ODF) by Government of India.
be tendered and 1 project is under DPR preparation. As stated, only one urban local government has
Under Smart city Thiruvananthapuram, renovation not been declared ODF, and that is the municipal
 URBAN DEVELOPMENT | 211

corporation of Cochin, where ODF criteria has been bio-methanation and (iii) establishment of community-
fulfilled for the entire area except Post and Telegraph level waste management systems for handling non-
colony in Gandhi Nagar ward. The 87 families residing biodegradable waste.
in the colony have toilets but there is no plant for The local governments in the State formed a
treating toilet waste scientifically. Hence, the State workforce, namely, Haritha Karma Sena for providing
Government decided to rehabilitate the families under assistance to the households for composting of wet-
the LIFE Mission. waste at source and for collection of all dry discards
However in the floods of 2018, 10,532 toilets in the for recycling. Suchitwa Mission extends financial and
State were damaged. The Government is taking steps to technical support to local governments for establishing
repair damaged toilets and replace totally damaged with Resource Recovery Facility (RRF) centres and Material
new ones and of this 413 IHHLs are completed as on Collection Facility (MCF) centres. MCF centre is for
March 2021. District-wise details of Open Defecation temporary storage of non-biodegradables obtained
Free (ODF) municipalities is shown in Table 13.8. from door-to-door collection for forwarding to RRF
Solid and Liquid Waste Management centres. The RRF centres sorts and manages different
The 13th Plan working group report on urban issues types of non-biodegradable waste for reuse or recycling.
suggested introduction of decentralised solutions Details of Haritha Karma Sena and resource recovery
for solid waste, including home/community-level facility centres and material collection facility centres
composting and promoting recycling industries. The are given in Tables 13.9 and 13.10 respectively.
Government has taken a three-pronged approach to In order to expedite the process of source-level
waste management in the State (i) source-level waste treatment of waste, indigenous technologies suitable for
reduction and treatment of biodegradable waste at the the State have been identified and implemented. These
source itself (ii) upgradation of existing common waste include pipe-composting, pot-composting, bucket-
management facilities of local government institutions composting, kitchen-bin composting, and bio-bin
using well-known technology such as composting and composting, in addition to vermi-composting, ring-

Table 13.8 District-wise details of Open Defecation Free (ODF) in urban area, Kerala in number
Name of District Urban Local IHHL Completed Urban Local Municipalities
Governments Target Governments declared ODF
declared ODF
Thiruvananthapuram 5 6317 6317 5 5
Kollam 5 3397 3397 5 5
Pathanamthitta 4 1673 1673 4 4
Alappuzha 6 1711 1711 6 6
Kottayam 6 1395 1395 6 6
Idukki 2 445 445 2 2
Ernakulam 14 3426 3407 13 13
Thrissur 8 2546 2546 8 8
Palakkad 7 894 894 7 7
Malappuram 12 2058 2058 12 12
Kozhikode 8 2855 2855 8 8
Wayanad 3 912 912 3 3
Kannur 10 1198 1198 10 10
Kasaragod 3 770 770 3 3
Total 93 29597 29578 92 92
Note : IHHL is Individual Household Latrines
Source: Suchitwa Mission, Government of Kerala
212 | KERALA DEVELOPMENT REPORT 2021

Box 13.2
Green Protocol
Green protocol is a set of guidelines for changing individual and societal attitude and behaviour towards zero-
waste and improved hygiene. The guidelines encourage the public to do away with disposables, promote usage
of reusables and recyclables, reduce waste, segregate waste at source, treat biodegradables at the source itself,
facilitate the reuse and recycling of non-biodegradables. It maximises the use of environment-friendly materials
and prevents the accumulation of disposable materials. The Government has ordered all its departments and
sub-offices to observe Green Protocol. The Suchitwa Mission under the banner of Haritha Keralam Mission
is building a public campaign to popularise the observance of Green Protocol all over Kerala.

Box 13.3
Declaration of Suchitwa Padavi
Suchitwa Padavi is given to the local governments which have provided basic facilities for bio and non-bio
waste treatment, effectively implemented door-to-door waste collection activities, carried out the activities
of the Harithakarma Sena and installed public toilets and latrines in all households. The local governments
which were given the status were able to implement Green Protocol, control the consumption of disposable
plastics, were successful in spreading public awareness on waste management. As on October 10, 2020, 597
local bodies in the State (31 block panchayats, 508 gram panchayats, 55 municipalities, and 3 corporations)
have been given “Suchitwa Padavi” status.

Table 13.9 Details of Haritha Karma Sena (HKS) in districts, Kerala in number
District No. of No. of No. of Haritha No. of No. of Haritha
ULGs Municipalities karma sena Corporations karma sena
started started
functioning in functioning in
municipalities corporations
Thiruvananthapuram 5 4 4 1 1
Kollam 5 4 4 1 1
Pathanamthitta 4 4 4 0 0
Alappuzha 6 6 6 0 0
Kottayam 6 6 6 0 0
Idukki 2 2 2 0 0
Ernakulam 14 13 12 1 1
Thrissur 8 7 7 1 1
Palakkad 7 7 7 0 0
Malappuram 12 12 11 0 0
Kozhikode 8 7 7 1 1
Wayanad 3 3 2 0 0
Kannur 10 9 9 1 1
Kasaragod 3 3 3 0 0
Total 93 87 84 6 6
Source: Suchitwa Mission, Government of Kerala
 URBAN DEVELOPMENT | 213

Table 13.10 Details of material collection facility centres and resource recovery facility centres in districts,
Kerala in number
District No. of ULGs MCF started functioning RRF started functioning
  Municipalities Corporations Municipalities Corporations
Thiruvanathapuram 5 5 6 3 2
Kollam 5 4 1 4 1
Pathanamthitta 4 5 0 4 0
Alappuzha 6 24 0 5 0
Kottayam 6 10 0 6 0
Idukki 2 3 0 2 0
Ernakulam 14 21 5 7 2
Thrissur 8 9 7 6 2
Palakkad 7 7 0 6 0
Malappuram 12 11 0 2 0
Kozhikode 8 7 1 1 1
Wayanad 3 2 0 0 0
Kannur 10 10 3 6 1
Kasaragod 3 4 0 3 0
Total 93 122 23 55 9
Source: Suchitwa Mission, Government of Kerala
composting and biogas plants. For promoting source- Ayyankali Urban Employment Guarantee Scheme
level composting of bio-degradable waste, Suchitwa (AUEGS)
Mission has empanelled more than 100 service The State Government started the Ayyankali Urban
providers for ensuring supply of composting devices. Employment Guarantee Scheme in 2009-10 in the
82 urban local governments have prepared pattern of MGNREGS. The Scheme addresses the
detailed project reports and Government of India has unemployment and under-employment problems in
approved these DPRs. For source-level treatment of bio urban areas. The scheme provides livelihood security
degradable waste in urban local governments, 8,37,763 in urban areas by providing at least 100 days of wage
composting pits and 94,300 number of biogas plants employment to every household whose adult members
have been made functional at household, institutional are willing to do unskilled manual labour. Creation
and community-level. Four municipalities have of durable community assets and strengthening the
undertaken projects for source-level treatment of waste livelihood resource base of the urban poor is also
with a total outlay of Rs 61.35 lakh. A plastic shredding envisaged under the scheme. The scheme is designed in
facility is functional in Neendakara Harbour to shred, such a way that at least 50 per cent of the beneficiaries
bale, and forward plastic materials collected from sea by shall be women who have registered and demanded for
the fishworkers. work under the scheme.
With the support of Suchitwa Mission, 15 permanent After the floods of 2018, priority was given to the
and 40 temporary swap shops, that is, a public system flood affected urban local governments for enhancing
to exchange reusable goods, has been established average person days of employment of the affected
in the State. Suchitwa Mission has created a pool of people through this scheme. Convergence of PMAY-
115 service providers with technical expertise and 35 LIFE with Ayyankali Urban Employment Creation
Harithasahayasthapanam and 1800 resource persons for scheme was ensured to create additional workdays.
extending assistance to the local governments. About In order to provide maximum workdays and ensure
2300 scrap merchants are now registered with Suchitwa smooth implementation of the scheme, essential tools
Mission. and small machines required for the labour work are
214 | KERALA DEVELOPMENT REPORT 2021

also provided under this scheme. Dairy farming has also were formed, and 3068 Area Development Societies
been introduced under the scheme. Dairy farmers who (ADSs) are supported with revolving fund and 19 city
have more than two cattle can be given employment livelihood centres sanctioned.
and wage through the scheme. Cleaning of drainage As part of DAY-NULM, specific interventions
and streets on a regular basis is included in the scheme. were made for micro enterprises for marketing their
The number of households provided employment from goods and services such as identifying nano markets,
2016-17 to 2019-20 is shown in Table 13.11. displaying products of micro enterprises units in the
Table 13.11 Number of households provided employment web portal, setting up food kiosks, and food fests. A
under Ayyankali Urban Employment Guarantee Scheme society called ‘Human Arm' consisting of girls skilled
from 2016-17 to 2019-20, Kerala in number under DAY-NULM was formed. Annual turnover of
Year Persondays No. of households the society during 2019-20 and 2020-21, September
created provided employment 30 were Rs 1.62 crore and Rs 1.07 crore respectively
and currently employs 258 candidates. The women
2016 - 17 3,84,000 13,064 employees are drawing a monthly salary of Rs 14,321
2017 -18 8,46,432 28,797 and they have the benefits of PF and ESI. The society
has extended its service to private hospital also.
2018-19 16,68,195 85,943
Way Forward
2019-20 26,80,660 1,04,652
1. Land use planning has to be complemented
2020-21 28,05,126 75,125 with spatial planning that is concerned also with
Source: Urban Affairs Department, Government of Kerala economic development, transport, service provision,
and ecosystem services.
Deendayal Antyodaya Yojana–National Urban
2. In view of the increasing urbanisation, it is
Livelihood Mission (DAY-NULM)
imperative to examine whether the institutional
DAY-NULM for urban areas is a centrally sponsored
arrangements and the fund devolution to urban and
scheme with 60 per cent of funding by Central
rural local governments is adequate to ensure that
Government and 40 per cent by State Government.
the cities and towns meet the requirements of the
The scheme started in 2015 is implemented in all the
people.
urban local governments in the State. The progress of
3. Adoption of modern accounting systems,
different components of the scheme from 2015-16 to
improved practices of budgeting and planning,
2020 -21 is as follows. Under the ‘shelter to the urban
implementation of best practices, effective use of
homeless’ component of the scheme, 3,195 persons
Ward Committees and other means of peoples’
were identified to be homeless and 22 shelter homes
participation, and programme assistance under
made functional. Further, under the support to urban
the existing schemes of Urban Affairs Department
street vendors component of the scheme, 24,643
should be adopted for improving urban governance.
street vendors were identified. Identity cards were
4. The State Government must set up a system for the
issued to 13509 street vendors. Under the component,
serial collection of data on urban areas needed for
employment through skill training and placement,
urban planning. Statistical databases must also cover
21,081 candidates have been enrolled and out of these
urban mapping using GIS technology.
15,648 candidates were certified and 10,045 candidates
6. A substantial increase in central allocation to the
got placement. Skill training has been imparted to the urban sector is required.
unemployed urban poor youth in 74 trades across the 7. Regarding urban poverty, the programmes should
sectors such as cyber security, accounting, health care, be based on a proper assessment of all types of needs
automation, plastic technology, electronics, electrical, and vulnerabilities. Innovative areas of employment
ayurveda nursing, hospitality, telecom, and food as developed in the State under the Kudumbasree
processing. Under the self-employment programme programme can be emulated across the urban
of DAY-NULM, 3398 individual micro-enterprises areas of the State. The scope of Ayyankali Urban
and 494 group enterprises were established. Under Employment Scheme should be widened to provide
the “social mobilisation and institution development” adequate employment for new sections of workers.
component of DAY-NULM, opportunities are given to 9. The slum programmes need to be monitored closely
set up micro enterprises. Through this, 16,784 NHGs at the State-level.
 URBAN DEVELOPMENT | 215

10. There is a need to increase the supply of affordable 12. Migration and regional disparities are strongly
housing and support services under the LIFE interrelated, and the impact of internal migration
Mission in urban areas. Building designs, especially on urbanisation has to be studied in depth.
in the case of apartments, need to be gender-sensitive 13. Mass urban transport systems are required.
and elderly-friendly, and should accommodate the 14. Avenues to provide rail-based urban transport
requirements of persons with disabilities. The Credit system in certain corridors in million plus cities may
Linked Subsidy Scheme of PMAY (Urban) has to be be explored.
better utilised in the State. It needs more publicity 15. Policy designs are needed in order to help urban
and cooperation from the banking sector. local bodies achieve the goal of universal coverage
11. Rental markets will continue to play an important of effective, safe, hygienic and sustainable solid and
role in meeting the demand for urban housing and liquid waste management.
built-up space.
216 | KERALA DEVELOPMENT REPORT 2021

Chapter 14
Kerala Beyond its Borders
The diaspora of a nation or region contributes to the Policy Thrust in the 13th Plan
development in its place of origin when it has confidence In the Approach Paper to the 13th Plan, the Government
in the purpose and determination of the Government expressed its resolve to strengthen its engagement with
in the home territory. An effective, transparent and the Kerala diaspora spread across the world. The 13th
non-corrupt Government enhances the trust of the Plan proposed a major shift in the Government policy
diaspora. Today in Kerala there is a Government of towards Non-Resident Keralites Affairs  (NORKA), the
this nature and credibility. The State Government, department entrusted with the responsibility of welfare
for its part, believes in using the vast experience and of non-resident Keralites, by substantially augmenting
knowledge of the non-resident Keralites (NRKs) for the Plan allocation to the department. 
the development of the State and is also committed The aim of the 13th Plan included steps to provide
to ensuring that all necessary steps are taken to ensure legal aid to the needy among migrants, impart finishing
safe migration, dignified living, and the successful skills to potential migrants through pre-emigration
rehabilitation of return migrants. training, ensure speedy authentication of relevant
There are 21.22 lakh emigrants from Kerala living certificates, and regulate the activities of intermediaries
across the world (Kerala Migration Survey (KMS), and service providers. The Plan envisaged structuring
2018). Over 89 per cent of migrants live in the Gulf insurance and social security programmes to benefit
countries. The country of residence of emigrants from migrants, and a comprehensive rehabilitation
Kerala as estimated in KMS 2018 is shown in Table 14.1. programme for migrant returnees.

Table 14.1 Country of residence of emigrants from Kerala in number and per cent
Destination country Number of emigrants in 2018 Per cent of emigrants out of
total emigrant
United Arab Emirates 8,30,254 39.1
Saudi Arabia 4,87,484 23
Oman 1,82,168 8.6
Kuwait 1,27,120 6
Bahrain 81,153 3.8
Qatar 1,85,573 8.7
Other west Asia 0 0
Sub-Total 18,93,752 89.2
USA 46,535 2.2
Canada 15,323 0.7
United Kingdom 38,023 1.8
Other Europe 0 0
Africa 5657 0.3
Singapore 12,485 0.6
Maldives 6243 0.3
Malaysia 11,350 0.5
Other South-East Asian countries 0 0
Australia and New Zealand 30,078 1.4
Other Countries 62,441 1.2
Total 21,21,887 100
Source: Kerala Migration Survey 2018
 KERALA DIASPORA | 217

The 13th Plan also aimed to promote − Loka Kerala Sabha Administration and Kerala
entrepreneurship by NRKs and seek investments by Development Fund Creation, NRK Investment and
them in Kerala and promote business and cultural visits Security, Rehabilitation and Post-Return Income
to and from Kerala by teams involving NRKs. The Plan Generation Programmes, Quality and Prospects of
also aimed to support global cultural festivals involving Migration, Migrants' Law and Welfare of Migrant
non-resident Keralites. Women, Migration and Cultural Exchanges, and issues
Major Initiatives and Achievements of the Keralite Diaspora within India. 
In line with the objectives outlined in the 13th Plan, These Standing Committees conducted
the Government through NORKA ROOTS, a public meetings and furnished their reports along with 48
sector undertaking under the NORKA Department, recommendations. The first meeting of the LKS
has introduced several major initiatives since 2016 for Secretariat was held on September 30, 2018. After
the welfare of non-resident Keralites. Non-resident scrutinising the 48 recommendations of the Standing
Keralites have been categorised into four groups Committees, the LKS Secretariat grouped the vital
• Keralites who are working in foreign countries suggestions into the following ten areas.
• Returnees from foreign countries A. Investment
• Keralites who are working in other States of India 1 Formation of NRI Investment Company
• Keralites who are going to foreign countries for 2 Formation of NRI Co-operative Society
employment 3 Formation of NRI bank
The schemes and programmes of the Government 4 Formation of NRI Construction Company 
focused not only on welfare issues, but also on providing B. Welfare
skills, providing avenues of investment, conducting 1. Formation of Women NRI Cell, and provide health
awareness campaigns on procedures of emigration, and insurance for returned emigrants
most importantly, on the overall integration of NRKs 2. Formation of Migration Facilitation Centre, and
with the State in social, cultural, and economic spheres. Pre-embarkment Orientation Centre
Some of the major initiatives and achievements of
C. Skill Development
the efforts of the Government from 2016 to 2020 are
1. Formation of the High-Power Committee
detailed below.
(Skill enhancement)
Enhancement of Plan allocation 2. Formation of International Migration Centre
The Government increased the Plan allocation to the
D. Art and Culture
Department of NORKA substantially, from Rs 28 crore
1. Conducting NRK Youth Festivals
in 2016-17 to Rs 140 crore in 2021-22. In the first year
2. Publication of journal for NRKs
of the Plan, that is, 2017-18, the Plan allocation more
Among the ten identified areas, action has been taken
than doubled to Rs 60 crore. The allocation was further
in the following areas.
enhanced to Rs 82.50 crore in 2017-18, Rs 80 crore in
1. Overseas Keralites Investment and Holding Limited
2018-19, Rs 81 crore in 2019-20 and Rs 90 crore in
with Chief Minister as Chairperson has been formed.
2020-21.
74 per cent of the shareholding of the company will
Engaging with the diaspora be by NRKs. The Government of Kerala’s equity
Loka Kerala Sabha. One of the most important share will be 26 per cent.
initiatives of the Government has been the formation 2. NRI Co-operative Society with headquarters in
of Loka Kerala Sabha, a platform for the cultural, socio- Thiruvananthapuram has started functioning.
political, and economic integration of NRKs with their 3. An NRI Construction Company, a subsidiary
home State. The Loka Kerala Sabha was introduced to company of NRI Investment Company, is being
provide an inclusive democratic space in which non- started for construction works including apartments,
resident Keralites are involved in the formulation of township projects, old age homes, roads, and
policies concerning the development of the State.  bridges.
The first Loka Kerala Sabha (LKS) was held on 4. NRK Women Cell has been constituted in NORKA
January 12 and 13, 2018. The Government of Kerala Roots to help in the safe emigration of women, for
constituted seven sector-specific Standing Committees providing awareness, and for addressing grievances
to work on the suggestions that emerged in the Sabha. of women NRKs.
The following Standing Committees were constituted 5. Proposal submitted to Government of India for
218 | KERALA DEVELOPMENT REPORT 2021

Migration Facilitation Centre in airports and Pre- offered for the first 4 years.
embarkment Orientation Centre at passport offices. In the last four years, substantial changes were
6. Report on Skill development is under introduced to make the scheme more effective. The
preparation. limit of the loan amount was enhanced from Rs 20
7. International Migration Centre has been lakhs to Rs 30 lakhs, the number of partner banks
started in Centre for Development Studies, was increased from 4 to 16 and the lock-in period
Thiruvananthapuram. for the capital subsidy was reduced from 4 to 3 years.
8. “Loka Malayalam,” a journal for NRKs, has been The Centre for Management Development has been
started. The second Loka Kerala Sabha was held roped in to provide technical support to entrepreneurs.
from January 1 to 3, 2020. The suggestions received The scheme NDPREM is also included in the Chief
from the sessions are under review.  Minister’s Entrepreneurship Development Programme.
The Loka Kerala Sabha played a vital role during the From 2016 onwards, Rs 50.92 core has been disbursed
Covid-19 pandemic. The Chief Minister of Kerala to 3175 beneficiaries.
held a video conference with LKS members and
Skill upgradation and reintegration training for
requested them to extend all possible help to non-
NRKs. Skill development and up-gradation training
resident Keralites in the adverse situation caused by
focusing on international labour markets are conducted
the pandemic. NORKA International Help desk was
by the Government through Government institutions.
set up with LKS Members, NORKA Roots Directors,
The Information and Communication Technology
and other organisation in UAE, Saudi Arabia, Oman,
Academy of Kerala provides ICT skills to the youth.
Bahrain, Qatar, Kuwait, USA, UK, Zambia, West
Training is provided to nurses for clearing different
Indies, Germany, Botswana, Norway, Ireland, and
Government Licensing Examination of countries for
Canada.
obtaining jobs through the Nursing Institute for Career
Global Kerala cultural festival. The Government has Enhancement. 75 per cent of the cost of the training is
initiated efforts to promote the Global Kerala Cultural met by the Government and the rest by the beneficiary.
Festival to provide non-resident Keralites with an Job portal. Job portal of NORKA Roots serves
opportunity to connect with their home State. This as a database of people in need of jobs. The portal
festival will serve as a platform for displaying the talent integrates job seekers and employers on a single
available in NRK communities. platform thereby helping both people in need of jobs in
Welfare scheme finding employment and employers in finding suitable
Santhwana is a scheme for NRKs whose annual income candidates.
is below Rs 1,50,000 and the scheme provides one-
Investment avenues
time assistance for marriage, medical treatment, and
purchase of equipment for persons with disabilities. Pravasi Dividend Scheme. The Government
The scheme also assists the family in case of death of the introduced the Pravasi Dividend Scheme in 2019
NRK. Two changes were incorporated in the scheme through the NRK Welfare Board, to invite investment
recently. First, the annual income limit was enhanced for the development of the State from the non-resident
from Rs 1,00,000 to Rs 1,50,000. Second, death Keralites. Pravasi Dividend Scheme aims for ensuring
occurring as a result of Covid-19 has been included the welfare of the NRKs and the returnees as well as
under the purview of the scheme. From 2016 onwards, garnering resources for the infrastructure development
an amount of Rs 91.50 crore has been disbursed to of the State. It is a long-term scheme where investors can
more than 15,575 beneficiaries. invest between Rs 3 lakh to Rs 51 lakh and are guaranteed
Skilling and employment a 10 per cent dividend including Government share. 10
per cent dividend on the first three years is added to the
NORKA department project for return migrants
deposit and a monthly dividend is made available to the
(NDPREM). NDPREM is a rehabilitation package
investors from the fourth year. Dividends will be paid
that aims to help returnee migrants who have worked
to the partner after the investor’s term. Thereafter the
abroad for at least two years to continue living a
nominee will be reimbursed for the investment along
dignified life. Under this scheme, subsidy is extended
with the dividend for the first three years.
for entrepreneurs having a seed capital of Rs 30 lakhs
and upon prompt repayment, 15 per cent subsidy on NORKA Business Facilitation Centre. NORKA
capital and 3 per cent rebate on the interest of loan are Business Facilitation Centre is an initiative by the
 KERALA DIASPORA | 219

Government of Kerala for offering comprehensive Emergency Repatriation Fund. Emergency

support services to NRKs and returnee emigrants on Repatriation Fund is used to meet the expenses of
investment opportunities in Kerala. The objective of emergence evacuation of NRKs from countries where
the Business Facilitation Centre is to attract investment there is civil unrest or natural calamities. Non-Resident
from NRKs to the State. This Centre commenced Keralites are evacuated from their places of work or
functioning in 2019-20 and has facilitated in setting up residence, in collaboration with MEA, Government
more than 30 enterprises attracting an investment of Rs of India. The Fund is used for meeting the expenses
110 crore and providing employment to 750 persons. of travel, accommodation in Kerala House, and other
Support and awareness services immediate expenses.
Pravasi Legal Aid Cell. Pravasi Legal Aid Cell is a Other Services
support introduced to provide legal aid to NRKs who The Government has streamlined other services such as
are languishing in the prisons of foreign countries Certificate Attestation, Recruitment Services, and Issue
especially in the Gulf Cooperation Council (GCC) for of Pravasi Identity Card. Certificate Attestation Services
minor or petty offences. Ignorance of the Law of the are facilitated in the Thiruvananthapuram, Ernakulam,
Land and language problems are the major reasons for and Kozhikode offices of NORKA. NORKA
them ending up in prisons. The Government of Kerala recruitment services have helped in providing doctors,
has engaged 11 legal consultants in 6 GCC countries. nurses, medical technicians, petroleum engineers, and
Out of 110 cases received, 100 cases have been settled. domestic workers to countries. 
NORKA Global Contact Centre. The Government
Covid-19 Pandemic and Measures undertaken by
of Kerala has started an international toll-free 24-hour
NORKA Department 
helpline for information dissemination and grievance
It is estimated that more than 7 lakh NRKs have returned
redressal of NRKs. NRKs can contact this Centre 24x7
from abroad. Of these, more than 4.5 lakh have lost
via live chat, email, and SMS. The Global Contact
their jobs. The NORKA Department introduced the
Centre was started on February 15, 2019, and in the
following measures in the wake of the pandemic.
last two years, more than 3 lakh NRKs from across 31
countries have used this service. Helpdesk in host countries and Covid response cell
Other Schemes in NORKA Roots. NORKA Roots established Help
Desks in 18 countries and Covid Response Cell in
NORKA Roots Director’s scholarship scheme. The
NORKA Roots Head Office in Thiruvananthapuram to
scheme started in 2019-20 is to assist children of NRKs
understand the situation of migrants in host countries
who are economically weak to pursue higher education.
and to facilitate assistance to Covid patients. 
175 students have been provided scholarship under this
scheme. Financial assistance for return emigrants. An amount
Online database. A web portal has been started to of Rs 5000 has been provided to return emigrants as
capture the number of NRKs in different parts of immediate assistance. 
the world and the country. The online database also Medical assistance for Covid affected return
provides the number of return migrants to the State. emigrants. The return emigrants who tested positive
The online database will provide a real-time assessment for Covid-19 after reaching the State were provided Rs
of the number of NRKs and will help the Government 10,000.
in formulating policies for their welfare and support. Bringing back NRKs. The State Government made
Emergency Ambulance Service. NORKA Roots significant efforts and interventions in bringing back
launched the Emergency Ambulance Service for the NRKs at the time of lockdown.
benefit of NRKs who are unwell or whose mortal
Discount for cargo. The Government made
remains have to be carried home. The NRKs who are
arrangements for despatch of essential medicines
unwell can travel to their home or nearest hospital
through air cargo or courier service at a 25 per cent
by availing this facility. This 24x7 facility operated
discount in the cost of transport.
with the support of the Indian Medical Association is
made available free of cost to NRKs. More than 700 Online consultation. The Government introduced
beneficiaries have availed this facility. facilities for online consultations with doctors.
220 | KERALA DEVELOPMENT REPORT 2021

Chapter 15
Learnings from Disaster: The Kerala Experience
In the last four and a half years, the Government of The global community took note of disasters
Kerala, under the leadership of Chief Minister Pinarayi through the multilateral processes of the United
Vijayan, has reset the benchmarks and raised the bar for Nations with a series of UN-sponsored collaborative
disaster governance in India. It has contributed decisively and cooperative initiatives beginning in the last decades
to the global understanding of disaster management. of the twentieth century. The decade 1990-1999 was
Every year, after the first, of this Government's term in marked as the International Decade for Natural Disaster
office has been marked by at least one notable disaster Reduction. Following this, the global community
of natural origin. All of them, while of a different kind moved to formulating and recognising an International
each year, have been significant in scale. However, with Strategy for Disaster Risk Reduction (ISDR), whose
every such challenge, Kerala’s society, under its current implementation as a movement across the world was
political leadership, has risen to the occasion in a sought to be coordinated and facilitated through a
manner that has not only been commended nationally Secretariat, the UNISDR. The UNISDR promoted the
and globally but has also encouraged serious scholarship implementation of the Hyogo Framework for Action
and enquiry into the nature of this success. Kerala’s 2005-2015 for international cooperation in disaster
response to the disasters has drawn the attention and reduction, an outcome of the Second World Conference
appreciation of democratic and progressive public on Disaster Reduction held at Kobe, Japan in 2005.
opinion, attention that was reflected in the ample and Subsequently renamed as the United Nations Office for
sustained media interest in Kerala in this regard. International Disaster Risk Reduction (UNDRRR), it
A full account of these disasters and the manner oversees the implementation of the next generation
of their management is not possible in the brief space of international cooperation in disaster management
available to us in this volume. Such an account would based on the Sendai Framework for Disaster Risk
have to begin with the worst drought of a century Reduction, adopted by the Third World Conference
faced by the State in 2017, take into account Cyclone on Disaster Risk Reduction in 2015 at Sendai, Japan.
Ockhi later the same year, the Nipah virus outbreak Together with the rising global preoccupation with
of 2018 summer, the record floods and landslides in environmental questions and issues, especially related
2018, followed by a similar situation in 2019 (though to biodiversity and climate change, the importance of
not of the same scale and extent), and the Covid-19 disaster risk reduction and disaster management have
pandemic of 2020. However, this chapter, more briefly, only become increasingly a key concern of the global
contextualises Kerala’s disaster management structures community.
and experience with reference to the global and national The increasing recognition of the importance of
scene. While providing some pointers to the reasons for disasters as a fundamental part of the international
Kerala’s successes in disaster management, it also briefly agenda of sustainable development has also had its echo
indicates the important issues that the State might face at the national-level with increasing attention devoted
in the future, with respect not only to the management to disaster management and its formalisation within the
of disasters but also to the all-important question of work of Government in India, at the national-level and
disaster risk mitigation. in the States. Managing disasters had, of course, always
Introduction and Background been a major concern of Government, and especially
Disasters have been known to humanity since its the purview of the revenue, police, and fire service
origins. While natural hazards or extreme climatic and departments. Command and control measures in
geophysical events are intrinsic to nature, it is their immediate disaster management, especially on a larger
impact on human society that transforms extreme scale, led at the Ministerial-level, either by the Prime
geophysical events of natural origin into disasters. Minister or Home Minister at the Centre or by the Chief
Despite their ubiquity in human history, disasters Minister at the State-level, were also an integral part of
have emerged as a serious field of study in theory and disaster governance. However, such approaches lacked
practice only in the second half of the last century. By the necessary force for dealing with the increasing need
the end of the twentieth century, disaster management for co-ordination in disaster management as well as
became a subject of increasing concern and attention integrating disaster risk reduction into the very process
across the world. of development itself.
 LEARNING FROM DISASTERS | 221

The most important landmark in the evolution of Kerala has been at the forefront of the evolution
disaster governance in India has been the passage of of disaster management in the country. With an
the National Disaster Management Act, 2005, and the active SDMA, aware of its functions and utilised by
establishment of a framework for disaster management the Government, alongside the other administrative
through the National Disaster Management Authority and technical arms of Government, the institutional
(NDMA) and corresponding bodies at the State-level structure of disaster management in Kerala has
(State Disaster Management Authority (SDMA)), undoubtedly made progress over the years. It may be
extending to even District Disaster Management added that it has rarely been put to the test as in the
Authorities (DDMAs) in all districts in the country. last few years, while its overall performance previously
The subsequent evolution of these disaster management did not excite particular attention. However, it is the
authorities has been driven primarily by their need to strengths of Kerala’s society and polity that have provided
cope with a number of disasters that have occurred in the flesh, blood, and muscle over the bare skeleton of
the country since then. institutional structures that have distinguished Kerala’s
The structure of disaster governance has also been disaster response in the last four years.
complemented by the evolution of national disaster The Kerala "Model" of Participatory Disaster
finance, through changes undertaken in the background Management
of the passage of the National Disaster Management Act, A key feature of the modern approach to global and
as well as the successive recommendations and guidelines national initiatives in disaster management is of course
of the various Finance Commissions that have since the emphasis on the importance of the participation
followed. Since 2010, the structure of disaster relief and by all sections of society in coping with and managing
rehabilitation finance is through the National Disaster disasters, especially large-scale disasters. It is in this
Relief Fund (NDRF) and State Disaster Relief Funds respect, in participatory disaster management, that
(SDRFs). As noted in the authoritative Arthapedia.in, Kerala has managed to decisively come ahead of other
a portal managed by Indian Economic Service (IES) comparable experiences both nationally and globally.
Officers, the financial assistance from SDRF/NDRF Kerala’s long record of increasing citizen awareness of
is for providing immediate relief and is not to provide governance and the increasing desire of the common
compensation for loss/damage to properties/crops. In people for a participatory role in the same has been dealt
other words, NDRF amount can be spent only towards with in a substantial manner elsewhere in this volume.
meeting the expenses for emergency response, relief, and But nowhere has the advance registered by Kerala in
rehabilitation. For projects exclusively for the purpose local government and the progressive decentralisation
of mitigation, i.e, measures aimed at reducing the risk, of governance manifested itself as decisively as in the
impact or effect of a disaster or threatening disaster case of recent disaster management.
situation a separate fund called the National Disaster Decentralisation and participatory governance
Mitigation Fund has to be constituted. This fund cannot however function by themselves. Especially
has still to come into existence and the Government when disasters occur, a strong degree of command
of India has recently been of the view that existing and control is also essential, particularly in situations
programmes and schemes are adequate to take care of of resource scarcity so common in developing
such disaster mitigation needs and that no separate fund societies. Balancing the two or developing a proper
is necessary. The hitherto existing  National Calamity synergy between the dimension of participation and
Contingency Fund (NCCF) was renamed as National decentralisation on the one hand, and that of command
Disaster Response Fund (NDRF) on  September 28, and control on the other, by a wise political leadership
2010 with the enactment of the Disaster Management is critical and clearly, this has been another ingredient
Act  in 2005 and consequent changes in the design of Kerala’s success.
and structure of disaster management in India. The Kerala’s human development advance and its
National Executive Committee (NEC) of the National network of social welfare and social safety arrangements
Disaster Management Authority takes decisions on have also been important ingredients to Kerala’s success
the expenses from National Disaster Response Fund, in disaster management. All the structures, institutions,
in accordance with the guidelines laid down by the and arrangements in the social welfare sector could be
Central Government in consultation with the National rapidly brought to bear on relief and rehabilitation. In
Authority.  the case of the Covid-19 pandemic, particular mention
222 | KERALA DEVELOPMENT REPORT 2021

must be made of course of the advance of the public The Challenge for the Future:
health system and its structure in the State. Scientific Disaster Risk Mitigation
Where arrangements and improvisations had to Kerala’s challenges for the future in disaster management
be made on the fly, Government and society proved may perhaps be summed up succinctly in the term
more than equal to the task, and lacunae, when they scientific disaster risk mitigation. The scope and scale
occurred, could soon be set right. Kerala society has of the disasters that the State has faced were no doubt
demonstrated a remarkable capacity for innovation, in part determined by the severity of the climatic or
from local social innovations to innovative Government biological extreme events that triggered them. However,
response as well as technological innovations, especially the lack of disaster risk awareness compounding the
using information technology, the latter brought to relative lack of mitigation, based on sound scientific and
bear by a new generation of young Keralites both at technological principles, has been brought out starkly
home and among the diaspora. during the floods and landslides of 2018 and 2019. The
The manner in which the communication worked presence of human activities and permanent structures
effectively both horizontally and vertically across in the flood plains of various waterways is only the tip
society need to be mentioned. Rarely has the country of the iceberg of a general need for consistent disaster
seen a Chief Minister, his Ministers, and senior-most risk mitigation. The occurrence of landslides provides
officials communicate in such steady and calm fashion, other such examples.
not hiding or shielding from view the depth of the The role of science and technology in disaster risk
crisis, but yet communicating across to officials, civil awareness and mitigation is essential on several counts.
society and the population what the state of affairs was One is of course the obvious short-term one of providing
and what needed to be done. While this has come to sound principles for determining when people are
global attention during the Covid-19 pandemic, with potentially in harm’s way and ensuring that they are
either protected adequately or taken out of the way of
many other leaders following similar strategies, this was
oncoming danger. The second and more challenging
a strategy perfected earlier by Shri Pinarayi Vijayan and
aspect, in a scientific sense, is determining the nature
his Government, in the face of other disasters as well.
of potential harm as an ongoing and dynamic question,
Horizontally too, communication in Kerala was rapid
that can change both with continued development
and effective, most notably seen in the vast mobilisation
as well as the potentially serious impact of climate
of assistance and relief within and outside Kerala,
change. Dealing with the latter particularly involves the
during the floods, handled by networks spanning all
intersection of natural sciences and technology on the
of society that were formed spontaneously and worked
one hand with economic and social dynamics on the
effectively. Communication has on the whole worked
other.
effectively during the pandemic as well, though the Regrettably, on both these aspects, the argument that
novel and intense nature of the challenge has proved no development at all, or only minimal development,
trying to all societies across the world, irrespective of is the solution, is one that is heard frequently. This
their-level of development. clearly cannot be valid in a country and a State where
The points made above need to be emphasised first significant development deficits, especially in generating
because they not only provide valuable lessons to the employment and livelihoods, based on productive
rest of the country but also because a rational account activity, have to be overcome. Science and technology
of the strengths of Kerala society is important for going are indispensable to not only locating danger but also the
ahead and staying aware of the need to ensure the solutions to disaster risk mitigation. A typical example
continued sustainability of these positive features and of such argument’s centres around the opposition
characteristics. At the same time, there is, no doubt, to so-called ‘‘linear’’ development, a euphemism for
room for improvement and advance, and a serious roads, railway lines, electricity transmissions lines,
account of how even Kerala’s strengths functioned and oil and gas pipelines. Unfortunately, a modern
across different regions and social and economic State with a modern economy cannot be built with
strata needs to be developed. Alongside one must also a transportation infrastructure that is so weak that it
seriously enquire whether, despite the overall positive takes hours to traverse one to two hundred kilometres.
performance, there were pockets of marginality and At the same time, instances repeatedly come to light
exclusion, and their extent, to which attention needs to of road construction in difficult terrain that skirts or
be paid in the future. altogether ignore basic rules of safe road construction.
 LEARNING FROM DISASTERS | 223

A number of specific scientific and technological that follow. Kerala’s economy has notably suffered
questions need to be studied with reference to the from the two successive years of flood and landslides
specific features of disasters in Kerala. Floods and while recovery has been seriously hampered by the
landslides are two features that need urgent remedies. onset of the Covid-19 pandemic in the very next year.
The landslides of 2019, in particular, point to surprising In the face of political headwinds that make resource
landslide proneness in zones that were not previously mobilisation by the State Government difficult and the
considered highly vulnerable. Evidently, both short- general difficulties associated with State finances (both
term and long-term studies are needed to deal with this dealt with elsewhere in this volume), the minimisation
problem. Coastal erosion is another serious challenge of disaster-related losses is essential.
for Kerala, though it manifests as a slow-moving disaster The call for scientific disaster risk mitigation should
rather than a sudden shock. The continuing challenge not be construed as an assertion that the science and
of coastal erosion, despite several decades of effort technology considerations would provide unique
and the lively public debate on the issue in the State, and deterministic solutions. In complex real-world
suggests that there are key gaps in our knowledge of the problems, with multiple factors in play, solutions are
processes and mechanisms that lead to such erosion. quite unlikely to be unique though there may be some
The current situation also suggests the need for serious common features. The choice between such solutions
scientific efforts ranging from data gathering in a much needs to be also guided by considerations of economic,
more intensive manner to more innovative and creative financial, and social factors keeping in mind the need
approaches to understand the particular features of for equitable sharing of any burden among sections
such processes along the Kerala coast. of the population. Solutions to real-world problems
Such studies need to involve closely not only experts will also need some learning by doing and the need
but also senior engineers and scientists in Government to experiment with different innovative approaches
departments on whom falls the burden of turning these to determine which provide the best sustainable
scientific outputs into engineering realities. Without alternatives.
critical awareness of disaster risk mitigation in the day- Last but not least, the social and economic fault
to-day engineering of both Government and the private lines in society and their manifestation in politics and
sector, proposed solutions are unlikely to be implemented. political decision making, are most evident in post-
There is ample scope for closely involving the academic, disaster recovery and rebuilding. Across the world,
science, technology, and engineering communities it has often been the experience that all too soon the
of Kerala for working on such problems. While such unity and sense of unified purpose that is evoked while
involvement may need serious efforts, training, further facing the disaster may dissipate, giving way to fractious
education, and general capacity-building it will provide debate and a scramble for coming out ahead in the race
ownership to the proposed solutions that will be to recovery. There is regrettably no easy formula to deal
lacking when proposed by outside experts working in with this political question that is as dependent on the
relative isolation with only basic consultation with the correlation of political forces in society as in any other
local stakeholders. Expertise and inputs could also be matter and, as always, it is the vigilance of democratic
sought on a global basis for assistance in developing and progressive political opinion that keeps society on
local expertise and relevant solutions. Such expertise
track. However, scientific soundness and rigour in the
from outside Kerala is also essential to ensure that the
formulation of recovery, does provide an important
scientific study of disasters in the State is not only carried
reference point for dealing with such debates in the
out but also done with serious attention to enhancing
post-disaster recovery era.
the level of scientific rigour accessing the best available
knowledge on a global scale. It is essential that some key Analysing the Flood Experience
themes in Kerala’s needs in disaster management could Two important documents related to experiences have
be dealt with in a scientific mission or task force mode been published by the Kerala State Planning Board.
in the immediate future. The first, on the floods of 2018 and the response to
Scientific disaster risk mitigation is also essential for floods, constituted the theme chapter of the Economic
avoiding the enormous economic losses that follow such Review 2018. Secondly, in 2019, the Kerala State
disasters. While participatory disaster management can Planning Board commissioned a study headed by
help save lives and provide relief and rehabilitation with the Executive Vice-President of Kerala Council for
dignity, this alone cannot avoid the economic losses Science, Technology, and Environment, a distinguished
224 | KERALA DEVELOPMENT REPORT 2021

hydrologist. The “Committee to examine the causes counselling services available to 40,000 flood victims
of repeated extreme heavy rainfall events, subsequent by December 2018.
floods and landslides and to recommend appropriate The floods had a critical impact on the State's
policy responses” was a team of experts drawn from economy. The damage to various sectors of Kerala’s
within and outside the State of Kerala. economy was heavy and was estimated at Rs 31,000
The main points raised in the special chapter of crore by the Post Disaster Needs Assessment (PDNA)
the Economic Review 2018 are as follows. The chapter of the UNDP. This worked out to approximately
notes that there is ample evidence to establish that the 5.02 per cent of 2016-17 GSDP at current prices (Rs
key to the floods of 2018 is the extreme heavy rainfalls 6,17,035 crore). The damage caused to infrastructural
that triggered the floods. Kerala received 2515.7 mm sectors such as power and transport, other economic
of rain in the southwest monsoon (June-September sectors, and social sectors were separately assessed in the
2018), which was 23.34 per cent higher than the PDNA. (Table15.1). Flood and landslide-related losses
normal rainfall of 2039.6 mm. But the heavy rainfall, put an additional strain on State finances, already facing
starting from August 8, became a 3-day long extremely stress because of the burden of committed expenditure
heavy rainfall from August 15 to 17, 2018. This 3-day and lower-than-expected growth rate of revenues.
rainstorm delivered 40 per cent of the long-term Subsequently, with the recurrence of the floods in
average rainfall for the entire southwest monsoon. Such 2019, the Kerala State Planning Board appointed a
extreme rainfall events naturally lead to extreme floods. “Committee to examine the causes of and appropriate
It also noted the fact that climate change is likely to policy responses to repeated extreme heavy rainfall
exacerbate the occurrence of such events, though no events and subsequent floods and landslides.” The
such attribution could be made to these events per se. Committee was chaired by Professor K P Sudheer,
The Central Water Commission (CWC) (2018) also Ex-officio Principal Secretary, Science and Technology
affirmed the critical role of extreme rainfall and that Department and Executive Vice President, Kerala State
the opening of dams had minimal or no impact on the Council for Science, Technology, and Environment.
runoff of water. Kerala has 57 large dams with a total The members of the Committee were leading scientists
storage capacity of 5.806 billion cubic meters (BCM), and experts of the country. Under its terms of reference,
which is equal to 7.4 per cent of the annual average the committee was requested to write a quick assessment
runoff of all 44 rivers in Kerala. Only seven reservoirs report that was to examine the causes of and recommend
have a live storage capacity of more than 0.20 BCM. appropriate policy responses to the extreme rainfall
Thus, dam management had only a negligible role to events (EREs) and subsequent floods and landslides.
play in flood management following the extremely The report was also to serve for developing emergency
heavy rainfall event. actions plans and disaster preparedness for the State
Eighty per cent (1259) of Kerala’s villages were of Kerala for such future events. The committee was
affected by the floods. Of the State’s total population to address specifically the following concerns while
of 3.48 crore, more than 54 lakh people, about a preparing the assessment report:
sixth of its population, were directly affected by this 1. The reasons for the occurrence of such EREs and
extreme event, displacing approximately 14 lakh people their major causative factors.
and damaging 1,74,500 buildings. The Government 2. The capability and potential for accurate forecasting
established 12,253 relief camps, providing shelter of such events with sufficient lead time.
to 34,15,937 affected people. Over 10 lakh people 3. Reviewing indicators and methods to locate areas
were evacuated and over 33,000 were rescued. The prone to severe landslides during such EREs and
Government provided immediate relief of Rs 10,000 remedial measures for minimising such hazards and
each to 6.87 lakh families and made psychological their consequences;
Table 15.1 Estimation of damages in Kerala consequent to floods in 2018 in Rs crore
Sector Damage Losses Damage + Losses Total Recovery Needs
Social 5,743 1,448 7,191 6,337
Productive 2,975 4,180 7,154 4,498
Cross cutting 0,561 16,159 26,718 30,715
Source: Post Disaster Needs Assessment Report, 2018
 LEARNING FROM DISASTERS | 225

4. Reviewing current maps of areas prone to flood (18), followed by Malappuram (11), Wayanad (10) and
hazard during such EREs and remedial measures to Kozhikode (8). Generally, steep sloping areas having a
minimise such hazards; and slope of more than 33 per cent are more vulnerable to
5. To pay particular attention to the role of changing landslide, and the majority of the landslides in the State
land use in these hazards. during the last two years occurred in these terrains. The
The final report of this committee was submitted to Committee noted that anthropogenic activities intended
the Planning Board in December 2019. Some of the for agricultural expansion and water conservation such
key observations of the committee were as follows: as terracing, blocking/diversion of stormwater channels,
The committee noted that the proximate cause and alteration of natural vegetation pattern have
of the heavy rainfall events (2018 and 2019) was the amplified the landslide susceptibility of these regions,
development of deep depressions over the northwest especially at Kavalappara, Pathar and Puthumala. In
Bay of Bengal and its neighbourhood, coupled with addition, soil piping has acted as the triggering factor at
the influence of the local orographic gradient on a few locations, especially in Northern Kerala.
the atmospheric circulation, variability in monsoon The committee also noted that landslides that
circulation caused by the transient synoptic-scale, and occurred in the last two years have largely (~80 per cent)
intra-seasonal propagating oscillations. It noted that fallen in the high hazard zones already delineated by the
no noticeable teleconnections of these EREs with El NCESS. However, since there were a few slides in low
Nino Southern Oscillations (ENSO) and Indian Ocean hazard zones while some of the high hazard zones were
Dipole (IOD) were observed. It also observed that unaffected, the refinement of the hazard zone mapping
there were important knowledge gaps however in the with the inclusion of additional causative factors is
prediction of such events. While a number of predictive necessary. Mapping should be performed on a fine
models were being used by various agencies worldwide resolution (preferably at the cadastral scale). Landslide
for the prediction of EREs, and many of them are being risk maps also needed to be developed at the cadastral-
used by the IMD in the Indian context, they do not level, to be used for long term land use planning.
capture the real mechanism of cloud formation and its The monitoring of ground movement also needed to
impact on rainfall distribution and pattern during the be considered as part of long-term research activity.
onset and occurrence of EREs. While the landslides of 2018 and 2019 were primarily
The report noted that the current rain gauge network triggered by the EREs, the major underlying reason for
in the State was not sufficient enough to capture the high the vulnerability of most of them was the instability of
spatial variability of rainfall because of the orographic the slopes caused by various anthropogenic activities.
barrier, and also in the context of the limited predictive Therefore, preventive measures needed to focus on slope
capability of the rainfall forecast models. The report stabilisation, for which the committee provided detailed
recommended a significant upgradation of the network recommendations. A number of mitigating measures to
density with the installation of 500 Automatic Rain be undertaken, and activities to be prohibited were also
Gauges (ARG)/ Automatic Weather Stations (AWS), listed in the report.
with priority given to regions receiving high-intensity Regarding flooding, the report noted that there are
rainfall in short periods including slopes that have several natural and anthropogenic drivers of floods in
the potential for flash floods. In view of the temporal Kerala, among which the prominent ones are: (1) high-
change in the size distribution and circulation pattern intensity rainfall for a prolonged duration; (2) human
of the dust aerosols in the State that have an impact interventions in the catchment areas, particularly in
on changing rainfall patterns, the committee noted the the floodplains and riparian zones; (3) unauthorised
need for further research as it indeed is an emerging area encroachments leading to reduction extent of natural
of research worldwide. The significance of forest fires areas and their impaired functionality; (4) reclamation
across the Western Ghats on the aerosol concentration of wetlands and lakes that acted as natural safeguards
was also to be studied in this context. against floods due to urbanisation and development
In the committee's assessment, the triggering factor of infrastructure; (5) unexpected EREs and lack of
for the occurrence of landslides across Kerala during the exposure in handling such EREs through reservoir
EREs in August 2018 and 2019 was the oversaturation operation; and (6) decreased channel capacity due to
of the overburden. Idukki experienced the maximum sedimentation and aquatic vegetation. In particular,
number of landslides (977 including minor slides) in though, the floods experienced in the last two years have
2018, whereas Palakkad had the highest count in 2019 a large return period (occurring once in more than 100
226 | KERALA DEVELOPMENT REPORT 2021

years) and hence the preparedness for such events was for all the reservoirs. The committee also noted a
low due to their very low probability of occurrence. The number of other measures in some detail to deal with
committee also particularly analysed flood inundation the challenge of flooding. Detailed observations and
for various scenarios of different reservoir-levels and recommendations were also made by the committee
24-hour 100-year rainfall for the Periyar river basin to promote sustainable housing in hazard-prone
and developed possible flood inundation maps (which zones.
proved to be of value in 2020). Such studies however The report in its executive summary and its main
need to be undertaken on a larger scale in order to body provided detailed “Recommended Action Plans.”
demarcate the flood-prone areas under different Recommendations were made regarding overall
conditions in all the river basins in the State. policy, the scientific studies to be undertaken, land
On the question of reservoirs and flood control, the use management, management of water resources,
report noted that the focus of reservoir management guidelines for and regulation of construction,
was the conservation of water for power generation agriculture, dam/reservoir management, data
or irrigation purposes and that flood control was not management, social awareness, and governance issues.
considered an integral part of reservoir management, The Report demonstrates the kind of scientific input
except in a few locations after 2018. The committee that is needed in this sphere.
noted that flood control as part of reservoir operation Interested readers may note that both these
policy should be extended to all reservoirs in the State. documents, that is, the special chapter of the Economic
Further, the authorities concerned should explore the Review of 2018 and the report of the Committee on
possibility of providing some dynamic flood cushion floods and landslides are available on the website of the
in the conservation zone below the full reservoir-level State Planning Board.
 RESPONSE TO COVID-19 | 227

Chapter 16
Kerala’s Response to Covid-19 Pandemic:
A Major Socio-Economic Challenge
From January 30, 2020, when the first case of Covid-19 Kerala also appointed an Expert Committee with Dr B
was reported in India in Kerala, the State Government Ekbal, Member, State Planning Board, as Chair to advise
adopted a multi-pronged strategy to deal with the the Government on Covid-19 control. The committee
pandemic. Kerala’s response to the pandemic has met every day from March 20, 2020 to March 20, 2021
received worldwide acclaim, and became a model in (and has met once a week thereafter) and submits its
terms of management strategy, mitigation efforts, and findings and suggestions to the Government of Kerala.
relief measures. The Government of Kerala was the first to announce
Kerala’s response to the Covid-19 has been a substantial programme, much ahead of other States
multidimensional, and marked by a strong commitment and the Central Government, to address the anticipated
to development and social justice. The hallmarks of the economic impact of the Covid-19 pandemic in the
State’s response included universal access to food, access form of a Rs 20,000 crore package. Of the Rs 20,000
to shelter, and low-cost or free medical care, and access crore economic package, Rs 1,320 crore was set aside
to information. A strong public health infrastructure to disburse welfare pensions in advance for two months
built under the Aardram Mission, information in March 2020. Another Rs 100 crore was allocated to
dissemination at the highest-level spearheaded by the provide assistance of Rs 1000 each for families that were
daily press conferences of the Chief Minister, and not eligible for welfare pensions. In the subsequent two
provisioning of food and other means of subsistence, months, Rs 2000 crore was disbursed as loans through
including cash support and shelter to the needy in the the Kudumbashree scheme, with the State Government
most difficult times, characterised the unique nature of bearing the interest component. Another Rs 2,000 crore
Kerala’s approach towards Covid-19 mitigation efforts. was set aside to provide jobs under the Employment
Local governments led the efforts at the grassroots- Guarantee Scheme.
level by spreading awareness about Covid-19 through To compensate for the cooked mid-day meal which
campaigns such as “Break the Chain.” They provided could not be provided to children under lockdown, it
public sanitation facilities, instituted support services was decided to provide food security allowance (a food
for persons in isolation, ensured the availability of kit) directly to homes in accordance with the provisions
essential items, prepared an inventory of healthcare contained in the National Food Security Act, 2013, and
facilities available at the local-level, and set up Mid-Day Meal Rules 2015. The food kit included rice
community kitchens across the State. and nine other grocery items. The kits were distributed
Covid-treatment, including testing and, more through Supplyco stores in the State.
recently, vaccines, was made free in Government The Kerala State Planning Board initiated the
hospitals. At all times food was also provided free of prioritisation of Plan Schemes of 2020-21 by sequencing
cost to all patients. In addition, psychological support schemes already proposed in the Budget based on the
was provided to all Covid-positive patients and those immediate need and availability of resources. This
in quarantine through dedicated psychological support exercise achieved the desired objective of fast-tracking
teams. expenditure by departments.
The Health Department launched e-Sanjeevani These were the highlights of the Kerala Government’s
telemedicine services in Kerala on June 10, 2020. They Covid-19 response package. We now look at the
have been providing services in a centralised manner, response sector-wise and in greater detail.
and DISHA is the State hub managing the telemedicine Kerala: Health System Response to Covid-19
activities for the State. Kerala has a strong primary health care system
The Government of Kerala created a five-tier augmented by the three-tier local government system.
structure outside the health infrastructure – home Kerala also has a strong network of health workers and
quarantine, Domiciliary Care Centres, Covid First- volunteers who are involved in ensuring the provision
Line Treatment Centres, Covid Second-Line Treatment of comprehensive health care to all. Managing
Centres and designated Covid hospitals – to provide public health emergencies like floods, landslides, and
care and support to Covid patients. The Government of outbreaks like the Nipah virus has further strengthened
228 | KERALA DEVELOPMENT REPORT 2021

Box 16.1
A New Model of Accountability
At 6 pm every day after March 2020, the people of Kerala routinely switched on their television screens
to listen to the Chief Minister give them the very latest on the Covid-19 pandemic. Through the ups and
downs of last year, as the Covid-19 pandemic spread sickness, fear and isolation in the homes and hearts of
the people of Kerala, the daily briefing by Chief Minister Pinarayi Vijayan became something more than a
daily update of facts and figures on the developing pandemic. Dressed in familiar white, flanked at a distance
on either side by his senior colleagues, the Chief Minister, through this daily exercise, became something of
a beacon of hope and reassurance during very uncertain times.
The daily press conference, held from 6 pm to 7 pm, redefined the concept of prime time television in
Kerala. During that time-slot, the ratings of all Malayalam television news channels sky-rocketed. As more
and more people tuned in, all media houses aired his every word. Not surprisingly, viewership soared.
The briefings followed a set pattern. First, an exhaustive update on the state of the pandemic. Nothing
was held back, and what may perhaps have been missed in the routine part of the briefing was invariably
dealt with in the following session of questions and answers with the media. Figures on infection rates,
hospitalisations, quarantines, deaths, and district-wise and city-wise data were presented. This was followed
by a report on the multi-sectoral response of the administration to the crisis on that particular day. Important
announcements and future plans were relayed. Then came media time, during which the Chief Minister
replied, with care and precision, to questions from Kerala’s robustly adversarial media.
Every briefing usually saw the Chief Minister make at least one departure from the script. On one
occasion, for example, it was about the unequal burden of the lockdown on women, which he followed
up with an exhortation to men to share domestic work with the women of the family. On another evening
he reminded Kerala society of its responsibility of caring for migrant workers (the term in use in Kerala
for migrant workers is “guest” workers). He has spoken of the needs of care for domestic animals, and
of the need to keep one’s surroundings clean. On one occasion he reminded his audience of the special
attention that children and the elderly deserve in society. He congratulated students of a particular school
who offered their modest Vishu earnings to the Covid-19 fight, and has urged people to be understanding
of the sacrifices made by those engaged in essential services. No issue of relevance was either too big or too
small to be mentioned.
Reaching out thus to the people in times of adversity was not new for the Chief Minister. During the
historic floods of 2018, he held press conferences daily, in fact holding them twice a day when needed.
These press meets not only kept the people of the State updated on the rescue and relief efforts, but also
helped alleviate their anxieties. During this period, the Chief Minister set new standards of leadership,
accountability, crisis management, attention to administration detail, and care. In the monsoon disaster in
2019, when severe landslides occurred, Kerala’s Chief Minister held daily press meets. He did the same in
2020 following the landslides in Idukki and Wayanad, and in the wake of the plane crash in Kozhikode on
August 7, 2020.
Such interactions are in a sharp contrast to events in the rest of country, where national leaders refused
to talk to the press, let alone respond to questions from them. The Chief Minister’s initiatives with respect
to press conferences were a recognition of the people’s right to information during natural disasters and the
Covid-19 crisis. They constitute a model of political accountability within a democratic system.

the health care system in the State. When information in the State, a detailed evaluation of all the health care
regarding the outbreak of coronavirus in Wuhan city of facilities in the State in both Government and private
China was received, the health department activated its sectors was done. Baseline data regarding the number
emergency response mechanism to prevent an outbreak of hospital beds, ICUs, and ventilators were collected
within the State. and analysed. Total available beds were categorised into
Soon after the declaration of the first Covid-19 case Plan A and Plan B, and any additional beds that could
 RESPONSE TO COVID-19 | 229

be allocated by converting other facilities were allocated at State and districts-levels closely monitored the
as Plan C. A detailed action plan on how to use these functioning of all facilities providing Covid treatment.
facilities was prepared at the State-level by conducting The management and supervision of all infrastructure-
a series of meetings in all the districts. All confirmed related matters were dealt with directly by a high-level
and suspected cases were initially admitted to Plan A Government Committee. Infrastructure management
facilities. teams were created at State and district-levels to
Covid Care Centres (CCCs) were created for the monitor the bed occupancy status on a daily basis,
quarantine of all international passengers, interstate and to coordinate the allocation of additional beds or
travellers and contacts who did not have facilities for facilities. ICU and ventilator beds were also allocated
quarantining at home as per the guidelines. Covid for management of Covid-19 patients with severe
Hospitals were designated for the management of symptoms. As on September 28, 2020, a total of 9125
symptomatic patients and Covid First Line Treatment beds were allocated in Covid hospitals. In addition
Centres (CFLTCs) were designated for the management there were 1429 beds in other Government hospitals,
of asymptomatic Covid positive patients. As the 35874 beds in CFLTCs and 4813 beds in other private
caseload increased, CFLTCs also admitted patients with hospitals (total beds in these private hospitals is 21768)
Category A symptoms. Covid Second Line Treatment for treatment of Covid-19.
Centres were also identified and made functional. At Private sector engagement in Covid-19
least two hospitals in each district were designated as management
Covid Hospitals for the treatment of symptomatic A dedicated private hospital management team was
patients in the initial phase, and each Covid Hospital constituted in the State and in district Control Rooms.
was linked to two adjacent CFLTCs. From the beginning of Covid control activities, the
Guidelines and Standard Operating Procedures private hospital engagement team was working in close
were prepared for establishing and managing Covid liaison with the district private hospital engagement
Hospitals and CFLTCs. The guidelines for admission to nodal officers, private hospital managements and the
these centres were revised from time to time. Checklists IMA. They enlisted all the private hospitals district-
were prepared for monitoring Covid Hospitals and wise, and collected the details of the available facilities
CFLTCs weekly. CFLTCs were supported by the local including bed strength, ICU facilities, ventilators,
governments concerned. Provision of adequate staff specialists available, dialysis facility and ambulances.
and biomedical waste management were supported A series of online meetings with the representatives
by local governments. Supervisory teams were sent of private hospital organisations, namely, the
from the State centre to all districts to monitor the Indian Medical Association, Kerala Private Hospital
functioning of all Covid hospitals and CFLTCs. The Association, Catholic Hospital Association of India
team did supportive supervision of all facilities using (CHAI), Private Medical colleges Association and
a checklist prepared at the State-level. Daily review Qualified Private Medical Practitioners Association
with all hospital superintendents was done through were held. The Chief Minister and Health Minister
video conferencing, and remedial action taken for any regularly conducted interactive sessions with the Private
deficiencies or shortcomings. The guidelines and other Hospital owners and management representatives. The
related documents were published on the website www. Principal Secretary, State Mission Director (NHM)
dhs.kerala.gov.in to ensure transparency regarding the and Project Director (KSACS) also conducted multiple
guidelines and Standard Operating Procedures used in online meetings with the private hospital associations
Covid management.
and discussed on Covid-19 case management in private
Covid patients were admitted to these facilities as
hospitals, non-Covid case management, telemedicine
per the State guidelines. All Covid positive patients
facilities, mobile medical units and HR support. The
were admitted to the nearest Covid hospital or CFLTC.
private hospital associations agreed in principle to the
A nodal officer was assigned to each Covid care facility.
Government rates for treatment of Covid-19 patients.
Helpdesks functioned at all such facilities and Helpline
numbers were provided to patients and carers. In Infrastructure and material management
addition, psychological support was provided to all the The Kerala Medical Services Corporation Limited
Covid positive patients and other persons in quarantine (KMSCL), a fully owned company of Government of
through dedicated psychological support teams. Kerala under the Department of Health and Family
In addition, infrastructure management teams Welfare, is the central procurement agency for all
230 | KERALA DEVELOPMENT REPORT 2021

essential drugs, and for medical devices and equipment had to undergo screening at arrival airports as per the
for the health care institutions under Government. The protocols set by Health Department, Government of
Corporation is a Special Purpose Vehicle and has been Kerala. All returnees, including asymptomatic persons
entrusted with the establishment of medical-based who did not have proof of having undergone necessary
ancillary facilities such as Cath lab, dialysis centres, tests, were made to take rapid antibody tests on arrival
pathological labs, diagnostic centres, x-ray or scanning at the airport by the Government of Kerala.
facilities, and ambulance services in the State. With the Ambulance network
outbreak of Covid-19 in Kerala, the Department of KMSCL has played the most critical role in the
Health took immediate action and a State Control Room ambulance services by managing the Kaniv-108
was set up. The Rapid Response Team (RRT) became ambulances to mobilise the Covid-19 suspects or
functional at the State headquarters and the KMSCL was patients from their households and exit points to the
entrusted with the task of material procurement, logistics isolation facilities. Total number of 316 ambulance
and supply chain management. For the management vehicles are available in these categories and number of
of Covid-19, KMSCL had set up one Covid Cell in vehicle used for Covid-19 are 293.
the headquarters under the leadership of the Managing
Director with all department heads as members. Psychosocial support during Covid-19 outbreak in
Kerala – “You are not alone; we are with you”
Tracking and testing strategy The Government of Kerala recognised the need for
As the initial cases were reported from persons who psychosocial support to the people, given the context of
travelled from Wuhan to India, Kerala focused on lockdown and measures such as isolation and quarantine
persons who returned from China. The strategy undertaken to address the spread of Covid-19.
of testing and tracking were modified when new Government of Kerala decided to provide psychosocial
epicentres of disease emerged in Europe, Iran and Gulf support to the persons in quarantine or isolation
Co-operation Council (GCC). Kerala followed an and their family members. On February 4, 2020,
aggressive strategy of quarantining and placing under Psychosocial Support (PSS) Teams were constituted
observation all those who came from hotspots. Contact by the Government in all districts under the District
tracing of all Covid affected persons was conducted and
Mental Health Programme (DMHPs). Psychiatrists,
they were placed under observation
psychiatric social workers, clinical psychologists, social
Setting up of Covid First Level Treatment Centres workers and counsellors started working in the entire
(CFLTCs) State under DMHPs. Psychosocial helplines were
To manage the Covid-19 pandemic, Government arranged in all districts in addition to the DISHA
identified certain hospitals and declared them as Helpline Number for the entire State.
dedicated Covid hospitals for managing and providing As the number of persons in quarantine began to
treatment to patients tested positive. With the increase increase drastically, counsellors from Integrated Child
of cases, few more hospitals were added to the grid. It Development Services (ICDS), Integrated Counselling
was later decided that patients with mild symptoms and Testing Centre (ICTC), and National Health
would be separated from critical patients. Hence Mission (NHM) were given training and pooled under
the concept of Covid First Level Treatment Centre the PSS Teams in districts. As of now 1327 personnel
(CFLTC) was introduced. A treatment protocol to shift are working in the entire State to provide psychosocial
the patients from CFLTCs to Covid hospitals and vice support. The prevalence of social stigma against
versa was formulated to reduce the burden of hospitals. Covid-19 patients were mostly because of the spread
CFLTCs were set up in places other than hospitals like of fake information, social isolation, and social media
hostels, and auditoriums which were converted into harassment. Measures were taken to create awareness
general wards. Each CFLTC was associated with a and in case of social media harassment, information
Covid hospital.
was sent to the media cell of control rooms. A six-
Arrival of Non Resident Keralites minute video on relaxation techniques was prepared
In the last week of June 2020, the Government of and sent to persons in need. An awareness leaflet on
India gave permission for the return of expatriates from better communication and stress management was
various foreign countries. prepared and given to staff of isolation wards. The same
The Government of Kerala intended to bring back was also provided to the training team to be included in
all the stranded Keralites safely into Kerala. All returnees the training module of isolation ward staff.
 RESPONSE TO COVID-19 | 231

Psychosocial support and counselling calls were Covid-19 awareness from the beginning of 2020. The
made regularly to patients undergoing treatment, Health Minister’s video requesting all people coming
children with special needs, guest labourers, elderly from Covid-affected countries to follow Government
people living alone and health workers. As the number of regulations was widely disseminated through television
alcohol-withdrawal cases began to increase, community channels, FM radio stations, print and social media.
de-addiction guidelines were prepared with the aim of A Special Booklet named “Karuthal” with awareness
treating such cases at the primary care-level. A panel of content on Covid and non-Covid diseases was printed
psychiatrists was set up in all districts to help primary and disseminated. In order to intensify the social
care medical officers in community-based de-addiction. media campaigns, a comprehensive whatsapp chatbot
As on October 10, 2020, 14.44 lakh persons in was implemented where people could get important
quarantine or isolation had been given psychosocial messages and contact details by saving an official
support and counselling calls. Among the psychological mobile number in their phone. A Special Postal cover
issues noted were stress, anxiety, stigma, and insomnia. was issued with Covid awareness content with the
Social needs like food, medicine, medical consultations, help of the postal department. A special campaign was
and other essential items were met through ICDS, also conducted through “Victers” channel after the
Youth Welfare Board and local governments. A module Government started online classes through the channel.
on stress management and motivation enhancement Hoardings with Covid-19 awareness content was
among health personnel was sent to districts for placed all over Kerala, and messages were placed on
conducting online classes to frontline doctors, nurses, Jan Shatabdi trains and vehicles of the Department
health workers and control room personnel. of Health and Family Welfare. A special campaign
As suicides started getting reported among school was conducted through the online media handles of
children while starting online classes, counselling was mainstream media and important awareness messages
extended to all school children. Phone numbers of the were also published in popular magazines as well. A series
parents of anxious or worried children were provided to of awareness videos, were produced and disseminated
PSS teams for psychological intervention calls. DISHA through all the platforms. A special interactive session
Helpline numbers were circulated among children with the Chief Minister was conducted every day for
to call in case of any need. As of October 10, 2020, media persons as well as for common people to clear
3,47,105 children were given reassurance calls, and doubts about the pandemic and its status, to be carried
where needed, treatment. live on Government social media handles.
Capacity building e-Sanjeevani – telemedicine platform
In a herculean effort, the entire personnel of the entire When social distancing is among the major measures
health management system were trained in Covid-19 used to fight against Covid-19 pandemic, tele-health
precaution activity. is stepping-up as a key technology for safe and
The Directorate of Health Services and the National efficient communications. Indeed, the World Health
Health Mission joined hands with all departments in Organisation identified telemedicine among essential
the State and with private organisations. Three types services in “Strengthening the Health Systems Response
of training were designed and conducted: sensitisation to Covid-19” policy.
programmes, skill training, and motivational and stress In Kerala, the Health Department launched
management training. e-Sanjeevani telemedicine services in Kerala on June
10, 2020, with DISHA as the State hub for managing
Covid-19 management – volunteer and elderly care
the telemedicine activities for the State. e-Sanjeevani
A community-level coordination committee has taken 368 doctors, including specialists, on board.
comprising local government, community volunteers, They provide services for an average of 500 persons
Kudumbashree, and Women and Child Development per day from all across the State. The average time
Department was organised in all districts to conduct for a consultation is 10 minutes 40 seconds, and the
daily calls and visits to the homes of the elderly. There average patient wait time to get connected to a doctor
are three lakh volunteers involved in elderly and is 3 minutes 54 seconds. e-sanjeevani has general OPD
palliative care activities in the field. services as well as speciality OPD services. By providing
Activity report on mass media campaign for these services, the rush in the outpatient department
Covid-19 awareness was reduced and the delivery of services ensured to the
A series of mass media campaigns were conducted for general public at their door step.
232 | KERALA DEVELOPMENT REPORT 2021

Government of Kerala dashboard agriculture and industrial sector, and support to non-
Covid-19 data are made available to the public through resident Keralites who returned home from abroad as
the Government of Kerala dashboard available in well from other States. The Government disseminated
the web address www.dashboard.kerala.gov.in. This information about the speed of the pandemic and the
dashboard is updated daily and gives data on the number containment strategies adopted by it.
of Covid-19 cases (active and recovered), total number Rs 20,000 crore Covid-19 package
of deaths, district-wise distribution of cases, district- The Government of Kerala came out with Rs 20,000
wise distribution of person under hospital-quarantine economic package to tide over the crisis, much earlier
and home-quarantine, daily hospitalisations, number than other States and the Central Government. This
of samples sent and tested, with results and so on. It sum was infused into the State’s economy on an
also shows the hotspots across the State, volunteer emergency basis.
distribution, distribution of volunteer support groups, The details of the disbursements under this package
and details of psychosocial support. were spelt out in the beginning of this chapter.
Economic Response To this we must add the allocation of Rs 500 crore
The pandemic and subsequent lockdown had a to meet the additional expenses in the public health
devastating impact on the State’s economy. The sector to roll out Covid-19 care facilities. To provide
national lockdown that started on March 25, 2020 food grain through the public distribution system, the
and extended till May 31, 2020, brought the economic Government further allocated Rs 100 crore. Besides, an
activities to a stand-still. The lockdown continued in allocation of Rs 50 crore was made to provide meals at
specific areas based on the number of cases. Most of just Rs 20, as part of the Hunger Free Kerala project. To
the productive sectors bore the brunt of the lockdown, roll out this, the Government set up 1,000 food stalls
while some sectors like agriculture, banking, and in April itself.
public administration were largely unscathed. Covid Further, the State Government allocated Rs 14,000
hit different sectors of the State’s economy differently. crore to clear all pending payments of the State
In the quick loss assessment report brought out by Government to institutions and individuals.
State Planning Board, Government of Kerala in May, Apart from the emergency direct infusion of cash into
2020 for the first quarter of 2020-21, the total lockdown the economy, relaxations in norms and bill payments
in April was expected to bring about 80 per cent loss were given to ensure that people have additional cash
in Gross Value Added (GVA), and the subsequent two at disposal. The Fitness fee for auto rickshaws and taxis
months were expected to have about 15 per cent and was relaxed. A relaxation of one month was provided
10 per cent losses. Along with these assumptions, and in the quarterly taxes of stage carriages and contract
considering that the State’s economy would have grown carriages. These concessions amounted to Rs 23.60
at the same rate as in 2019-20 but for the lockdown, crore. The Government also allowed delayed payment
a loss of Rs 80,000 crore was anticipated in the first of electricity and water bills for one month without any
quarter. The loss in sectors such as agriculture, animal fines. Entertainment tax on movie theatres was waived.
husbandry, fisheries, industry, labour, tourism, and Discussions were held with organisations of traders
Information Technology were also assessed. and businessmen to ensure adequate availability of
The loss assessment report for April to June, 2020 essential materials during the lockdown. Online facilities
that was brought out later by the State Planning Board were set up to ensure delivery of essential articles,
identified that the first quarter GVA of 2020-21 shrunk including vegetables and pulses, to families during the
around 26 per cent of last year’s first quarter GVA. The lockdown. Voluntary services of organisations assisted
loss in GVA during Q2 of 2020-21 compared to the same people in need. Books were made available to those in
quarter of last year was estimated to be 18.5 per cent. quarantine with the assistance of publishing houses.
Kerala’s economic interventions Sufficient internet bandwidth was ensured, following
The Government of Kerala undertook various initiatives discussions with service providers.
to arrest the impact of Covid-19 on the State’s economy A meeting of the State Level Bankers Committee
and lives of people. These include infusion of money (SLBC) was called to persuade banks to not undertake
into the economy through direct and indirect support, any loan recovery proceedings during the economic
ensuring food and shelter for the needy, generating turmoil caused by the pandemic and to provide
employment opportunities, increasing production of financial relief.
 RESPONSE TO COVID-19 | 233

The Government took measures to channelise the by the department in Palakkad, Kuttanad and Kole
scarce resources at its disposal to address the most areas.
important needs of the economy. The schemes in the From March 23, 2020 till April 15, 2020, HortiCorp
Plan of 2020-21 were sequenced in order of priority so procured 1200 MT of fruits and vegetables from
that the resources could be utilised effectively. farmers within and outside the State. Online sale of
Food security fruits and vegetables was arranged through online food
Kerala devised a special scheme to ensure that food delivery platforms in Thiruvananthapuram, Kottayam,
was available to all. “Subhiksha Keralam” is a massive Ernakulam, Thrissur and Kannur districts. HortiCorp
people’s campaign to achieve self-sufficiency in food and VFPCK made efforts to procure pineapple from the
production. The programme aims to increase farmers’ production sites and sell it online. Supply of fruits and
income, attract youngsters to farming and rehabilitate vegetables was also arranged to different community
return migrants, thus giving new life to agriculture in kitchens, residents’ associations, guest worker camps,
the State. and other agencies throughout the State. Sale of fruits
As per the Plan, paddy is to be cultivated in 5000 and vegetables to consumers also took place through
hectares, vegetables and plantain in 7000 hectares each, the 100 own-stalls and around 200 franchised outlets
tubers in 5000 hectares, and lentils and small grains of HortiCorp.
in 500 hectares each. A total of 25,000 hectares of Tea
fallow land is being measured for cultivation under The procurement of the tea by the Government of
the leadership of the Local Self Governments, with the Kerala for supply through the public distribution
guidance of the Department of Agriculture and the system lifted prices of the commodity and provided
cooperation of the general public. Kitchen gardens are to certain relief to the stakeholders. SupplyCo purchased
be encouraged in all households, with the Government about 2.5 lakh kg for distribution under PDS as a part
providing seeds and saplings. A chain of cold storage of the food kits of essential items being distributed
facilities is envisaged to ensure that the produce is during the lockdown period.
preserved after harvesting. The State is preparing to Animal Husbandry
adequately market the increased production, so that Kerala Livestock Development Board (KLDB)
producers get a good price. continued the supply of frozen semen, liquid nitrogen,
The major departments involved in the programme and other artificial insemination (AI) inputs to all centres
are Agriculture and Farmers Welfare, Animal in the State during the lockdown period, even when the
Husbandry, Dairy Development, Fisheries. Co- production suffered mainly because of the shortage of
operation, Water Resources, Industries and LSG to liquid nitrogen, which arrives from Pondicherry. The
provide credit, marketing and irrigation support. limited quantities of liquid nitrogen received were used
The measures for ensuring assistance and relief to the to save the frozen semen doses already in stock. Under
agriculture sector during the lockdown period started the Covid Relief Cattle Feed Subsidy Scheme, 2.95
much earlier. A total quantity of 386,944 tons of paddy lakh sacks of cattle feed were given to 1.82 lakh dairy
was harvested in Kerala till the first week of April 2020, farmers with a Government subsidy of Rs 400 per sack.
of which 1,64,951 tonne was procured by Kerala State Government of Kerala funded Rs 11.83 crore of the
Civil Supplies Corporation Limited (SupplyCo). entire cost of Rs 39.68 crore.
The Department of Agriculture, Vegetable and Fruit The reduction in milk consumption during the
Promotion Council Keralam (VKPCK), and HortiCorp lockdown and the restriction led to the reduction in the
intervened in the marketing of vegetables. The Farmers sales of the milk but the production and procurement
Retail Outlets (FRO) set up locally (one each in every remained relatively high. This necessitated the
panchayat, two each in municipalities, and five each conversion of surplus milk into milk powder. Nearly
in corporations) enabled farmers to sell their products 1.2 to 1.25 lakh litres per day of milk was sent for
locally to consumers. The online marketing strategy conversion to Tamil Nadu. However, the Government
adopted by the Government agencies helped in the of Tamil Nadu refused to procure milk from Kerala.
direct sale of products like mango, pineapple, banana, After discussions between the Kerala and Tamil
papaya and vegetables to the city dwellers. Moreover, Nadu Governments, on an emergency basis, Tamil
the inter-district movement of surplus produce was also Nadu agreed to procure 50,000 litres of milk for
organised. Six hundred paddy threshers were arranged conversion per day. To avoid wastage of the surplus milk
234 | KERALA DEVELOPMENT REPORT 2021

and ensure nutrition to the vulnerable sections of the capital infusion and interest subvention. There are 1.56
society, the Government of Kerala decided to distribute lakh small enterprises in Kerala, 70 per cent of the total
milk and milk products through Anganwadis, guest enterprises in the State. The sector also employs 40 lakh
labour camps, community kitchens, ConsumerFed, workers.
and the Civil Supplies Cooperation through Milma. Margin money assistance and interest concession
To give an impetus to the animal husbandry sector, for additional credit will be provided to existing micro,
the Government has proposed to set up 10,000 cross small and medium enterprises (MSME). A one-time
breed cattle units. In all local government bodies 8000 settlement of loan arrears will be implemented by
dairy units are to be set up. Of these, 200 of them will KSIDC and KINFRA. Six-month extensions will
be mechanised with Government support. Farmers were be given to these enterprises for the repayment of
provided assistance in procuring milking machines as interest. Three months’ rent will be waived in standard
well. Value addition of dairy products – like cheese and design factories under the Department of Industry.
curd – will be augmented. Domestic poultry farms and Entrepreneurs who use public facilities in industrial
piggeries are to be encouraged and assisted. parks will be exempted from rent for three months.
Fisheries
Interest subsidy will be granted for MSMEs and
With the imposition of the lockdown, all fishing manufacturing industries. Interest rate on loans taken
harbours and fish landing centres in the State were for diversification and development will be discounted
closed down. Mechanised fishing boats were not by six per cent for six months.
allowed to operate and fish auctions were prohibited. Special loans will be provided for working capital
The traditional way of fishing was, however, permitted. and asset creation for the businesses that already
Traditional fishermen were allowed to go out to fish have a KSIDC loan. Three-month moratoriums were
announced on interest and capital to all operating units
but were asked to not auction their products, as social
under KSIDC. After the moratorium, the loan can be
distancing measures were difficult to implement.
repaid without penalty. The fine for delayed payment
Instead, purchase and sales of marine fish were
to entrepreneurs who have taken loans from KSIDC
conducted at a price fixed by the Government. The
will be waived off completely for six months. KSIDC
Harbour Management Societies were entrusted to fix
will provide loans of up to Rs 50 lakh to MSMEs. The
the prices of different fish. In the fishing harbours and
repayment period will be extended to entrepreneurs
landing centres, a token system was introduced to avoid
who take up space in the industrial parks of KSIDC
crowds. A mobile application was also developed for
and KINFRA. The lease premium will be reduced
the online marketing of fish. The Government issued
in advance. By way of giving special attention to the
orders exempting aquaculture activities, fish farms and
enterprises owned by members of the disadvantaged
hatcheries and movement of feed, seed, and aquaculture
sections, women, Scheduled Caste (SC), Schedulted
essentials from lockdown restrictions.
Tribes (ST), and young entrepreneurs will be given 25
Salt water ponds were planned to be set up in
per cent margin money.
3,000 hectares for farming the Pearl Spot variety of
The Government has also implemented a string of
fish. Besides, 5,000 units are to be set up for joint salt
relief measures and provided various incentives to IT
water fish farming so that production can be increased
firms which are based in the State-run IT Parks. Rent
by 5,000 tons. Around 5,000 plastic ponds costing Rs
has been waived or a moratorium has been granted
1 lakh per unit were planned to be set up. Plans were
on payment of rent for the months of April, May and
made to set up mobile aqua labs in all 14 districts to
June, depending on the area under lease, for companies
ensure quality and disease control. The Government of
based in the State’s IT Parks. Surcharge on rent has
Kerala hopes to create 23,000 jobs in fisheries alone.
been waived for six months, from April to September.
Securing industries Annual rent escalation of five per cent has been waived
Kerala’s economy has taken a hit due to the Covid-19 for 2020-21, in Government owned buildings within
and the subsequent lockdown. Tackling this situation IT Parks. Subsidies have been announced on electricity
is not easy. The ‘Vyavasaya Bhadratha’ scheme is tariffs in IT Parks as well. Additional time of six months
formulated as a comprehensive plan for that purpose. It has been granted for commencement and completion
is being implemented by the Department of Industry. of construction works in land under the IT Parks, over
As a part of this, Rs 3,434 crore will be provided to small and above the deadline as per agreement.
and medium enterprises (SMEs) by way of additional The Kerala State Coir Corporation used to provide
 RESPONSE TO COVID-19 | 235

two months for exporters to make payments for the and Bronze based on the quantum of investment made
goods they procured from the Corporation. As a part and employment generated, so that the Government
of measures to address the economic issues due to the can ascertain benefits accrued and concessions to be
Covid-19 pandemic, this has been extended to four made. An Investment Advisory Committee consisting
months. Similarly, buyers who entered into MoU of investors, policy makers and industry leaders, is being
at Coir Kerala Fest have been provided 20 per cent set up to assist the Chief Minister in making Kerala a
discount (on the products they purchase). The benefit preferred investment destination. With these measures,
initially offered for three months till December 2019, Kerala is striving to create employment as well as
has been extended for six months till June 2020. A entrepreneurial opportunities for Keralites including
relief package has been announced, and 1.37 lakh coir return migrants, in a period when the economy as a
workers were provided relief of Rs 1,000 per worker. whole is contracting.
Further, income support assistance is being provided to Tourism
coir workers. The State Government has announced one-time
Public sector enterprises financial assistance of Rs 10,000 to 328 tourist guides
The Government of Kerala mobilised its resources who are rendered jobless because of the pandemic and
to produce hand sanitisers. Kerala Drugs and a one-time maintenance grant of Rs 80,000 to Rs 1.20
Pharmaceutical Limited, a public sector company under lakh to houseboats based on the number of rooms in
the Government of Kerala, started mass production of them.
hand sanitiser to ensure the availability of the sanitisers Relief was also provided to homestays, which
at the onset of the Covid-19 pandemic. have been moved from the commercial category to
Attracting investments the residential category. This allows the facility some
Every challenge brings an opportunity along with it. relief in the house tax amount to be remitted to the
Overcoming challenges also have to do with utilising local bodies. Administrative sanction of Rs 32.80
the opportunities that emerge alongside. In recent lakh had been given to assist approved tourist guides
years, Kerala has displayed a flair for emerging out of at the regional, local, State, and national-levels. After
the rubble. In India’s battle against Covid-19, Kerala construction works were allowed, there was a concerted
has emerged as a forerunner. The fact that amidst all effort to complete the infrastructure creation project at
these challenges, the entire Government machinery and major tourism spots.
society as a whole – including voluntary organisations – Transport
have been in perfect sync makes the State stand out as a With the onset of the Covid-19 induced lockdown,
safe and secure destination for investments. Kerala State Road Transport Corporation (KSRTC)
The Government of Kerala has decided to grant all actively intervened to assist Keralites stranded in other
major industrial licenses and permits within one week parts of the country. It conducted special services to
of application, with the condition that entrepreneurs transport 400 persons, including students stranded
will complete due procedures within a year. Multi- in various parts of Karnataka (Gulbarga, Mangalore,
Modal Logistics Centres are sought to be established Mysore and Bangalore) to different parts of Kerala.
in Thiruvananthapuram, Ernakulam, Kozhikode, Similar special services were conducted to help the
and Kannur connecting the airport, port, railways, students stranded in Theni and Madurai in Tamil Nadu.
and roads in these cities. Once this plan materialises, KSRTC also provided bus services from Palakkad
Kerala could emerge as a major player in international and Thrissur Depots to transport persons who came by
trade and commerce. Logistics parks are to be set up train from outside Kerala, including migrant labourers,
in different parts of the State to take advantage of the to isolation centres at Palakkad and Thrissur. Special
opportunities in export and import. Azheekal Port is services were provided at airports for travel needs of
being equipped to handle large volumes of cargo. those persons coming from abroad.
Value addition of agricultural products are to be The special service of KSRTC was used extensively
encouraged and land will be leased out to industries for the transfer of the sick and non-infected persons to
in the sector, at the Mega Food Park, Palakkad. A the isolation centres and other camps in different parts
Coconut Park with emphasis on value addition is to be of the State. Special services were also undertaken as per
established in north Kerala. A star rating system is to be the directions of the District Collectors for the travel of
introduced which will grade industries as Gold, Silver health sector officials.
236 | KERALA DEVELOPMENT REPORT 2021

Though lockdown was partially relaxed with effect December 2020, without levying interest during the
from May 3, 2020, the public transport system was deferred period.
allowed to function only from May 20, 2020. To ensure Labour welfare
that the people have adequate transportation facilities The Government of Kerala came out with a scheme
available to them, the KSRTC started to operate a to provide 68,02,984 workers with membership in 16
limited number of services as per the direction of the different Labour Welfare Boards with Rs 943.20 crore as
Government by complying the Covid-19 protocol. immediate assistance to address the financial problems
From June 9, 2020, KSRTC gradually started to faced by labourers during the lockdown. All registered
operate more services. labourers were provided Rs 1000 as relief fund. Welfare
Power Boards with better fiscal standing have sanctioned more
Ever since the start of the spread of the pandemic in the funds. Welfare pension for four months, including
State, Kerala State Electricity Board Limited (KSEB) April, was sanctioned in a lump sum. Government
has switched its priorities. Providing service connections sanctioned over Rs 58 crore to almost four lakh labour
for Covid-19 mitigation facilities being set up by the welfare society members registered with societies under
Government and maintaining uninterrupted supply various Government departments.
to all its consumers took precedence over all others. A Members of Abkari Workers Welfare Board were
contingency plan was put in place to ensure essential provided Rs 5,000 as financial aid and Rs 10,000
staff in operation and maintenance wings. Standby as interest loan. Under the Motor Vehicle Workers’
teams were constituted including contract workforce or Welfare Board, bus workers were provided Rs 5,000,
retired employees. goods vehicle workers Rs 3,500, and taxi workers
While strengthening the Centralised Call centre, Rs 2,500. Auto rickshaw and tractor workers and
KSEB also decided not to disconnect the supply on the automobile workshop workers were provided Rs 2,000
grounds of non-payment of the electricity charges, till and Rs 1,000 respectively. Members of the Toddy
further orders. Grace periods were allowed and interest Workers’ Welfare Fund Board were provided Rs 5,000
for delayed payment was waived during the grace assistance and Rs 10,000 as an interest-free loan.
period. Domestic consumers were allowed to make Construction workers and farmers, who are members of
part-payments of their bills. Non-domestic consumers their respective welfare boards, were provided Rs 1,000.
who were billed based on average consumption were Beauticians (approximately 40,000) who are part of the
given an option to remit 70 per cent of the bill amount. Welfare Fund Boards were provided Rs 1000.
High Tension (HT) and Extra High Tension (EHT) The Kerala Dairy Farmers Welfare Fund Board
consumers were also allowed to remit their electricity distributed pensions to dairy farmers. Special relief
bills for March and April, 2020 up to May 16, 2020, scheme for the farmers who had to pour out milk from
without claiming interest for delayed payment. March 1, 2020, to March 20, 2020, at Rs 1.00 per litre
KSEB has decided to absorb the transaction charges of milk poured and a maximum of Rs 1000 per farmer
for online payment of electricity bills through payment has been distributed. An allowance of Rs 10,000 each
gateways from April 20, 2020, to July 31, 2020. Those for Covid-affected farmers and Rs 2,000 for farmers
who were using an online facility for the first time for who are under quarantine is also being distributed
remitting their electricity bills were offered five per Civil Supplies
cent cash back (subject to a maximum of Rs100 per Ensuring that the people have enough food materials
bill) between May 4, 2020, and December 31, 2020. and no one is going hungry remained a priority of
KSEB also waived the application fee for new service the Government of Kerala throughout the lockdown
connection applications submitted online for one year. period, and after. The Government of Kerala provided
As per the directives of the Government of Kerala, kits with 17 items to all ration card holding households
a rebate of 25 per cent on the fixed charge was in the State in April in the wake of the Covid-19
allowed to industrial and commercial consumers and lockdown. (Table 16.1)
private hospitals for March, April, and May 2020 A total of 84,48,016 ration cards were provided
(during lockdown period). Industrial and commercial with the Athijeevana kit. The scheme-wise distribution
consumers and private hospitals were also given the of Athijeevana kit is given in Table 16.2.
option to defer the payment of balance fixed charge Athijeevana kit was provided in April as a one-time
(75 per cent) of these months (March to May), up to provision.
 RESPONSE TO COVID-19 | 237

In addition, Government of Kerala provided an kg), green gram (750 g), dal (250 g). Eight-item kit
Onam kit in August 2020 containing 11 items – sugar will be distributed each month from September 2020
(one kg), green gram (500 g), jaggery (one kg), chilli to December 2020 to all ration cardholders.
powder (100 g), coriander powder (100 g), turmeric Monthly rations distributed from April to
powder (100 g), sambar powder (100 g), coconut oil September 2020, in million tonnes (MT), is given in
(500 ml), pappad (one packet), vermicelli or payasam the Table 16.3.
ada (one packet) and broken wheat (one kg). A total of 11,10,583.67 MT of rice, 1,36,688.68
From September 2020 onwards the Government of MT of wheat, and 36,766.09 MT of atta was distributed
Kerala started providing grocery kits containing eight to the ration card holder from April to September
items – chickpeas (750 g), sugar (one kg), atta (one kg), 2020. According to the 2011 census 78,53,754 was the
coconut oil (500 ml), chilli powder (100 g), salt (one number of households in Kerala, there are 88,80,695
ration card holding households in Kerala as on
Table 16.1 Details of items in Athijeevana kit September 30, 2020.
Items Quantity Students
Sugar 1 kg As part of the measures taken to contain the spread
Tea 250 g of Covid-19 pandemic, schools were closed on March
Beans 1 kg 10, 2020. To compensate for the cooked mid-day
Chickpea 1 kg meal which could not be provided to children under
Coconut Oil 500 g the prevailing circumstances, it was decided to provide
Atta 2 kg food security allowance as per provisions contained in
Cornflour 1 kg National Food Security Act, 2013 and Mid-Day Meal
Chilli Powder 100 g Rules, 2015.
Coriander Powder 100 g As on August 19, 2020, Food Security Allowance
was given to eligible students, from pre-primary classes
Dal 250 g
to 8th standard. The allowance comprises of the entitled
Turmeric powder 100 g
quantity of food grains and the cooking cost due to the
Fenugreek 100 g child. Food Security allowance was sanctioned for 39
Mustard 100 g days in April and May 2020 and 15 working days in
Soap 2 numbers March, which were lost because of the lockdown. Kits
Sunflower Oil 1 litre were distributed during June to July.
Urad Dal 1 kg Food kit contained rice and nine other grocery

Table 16.2 Scheme-wise distribution of athijeevana kit

District AAY PHH NPNS NPS Total
Thiruvananthapuram 62,452 3,88,642 2,57,896 2,01,728 9,10,718
Kollam 48,114 2,84,307 1,88,121 1,98,597 7,19,139
Pathanamthitta 23,523 1,02,728 1,07,499 92,843 3,26,593
Alappuzha 40,426 2,39,843 1,51,610 1,37,890 5,69,769
Kottayam 35,048 1,63,808 1,68,879 1,27,555 4,95,290
Idukki 32,359 1,21,137 64,015 67,436 2,84,947
Ernakulam 37,361 2,50,017 2,57,694 2,71,583 8,16,655
Thrissur 52,388 2,80,858 2,13,181 2,60,751 8,07,178
Palakkad 47,571 3,05,880 1,85,192 1,81,107 7,19,750
Malappuram 52,934 3,78,198 2,01,057 2,97,807 9,29,996
Kozhikode 38,768 2,80,884 1,99,174 2,24,917 7,43,743
Wayanad 49,652 66,737 44,806 51,585 2,12,780
Kannur 35,514 1,64,628 1,89,298 2,16,458 6,05,898
Kasaragod 30,323 1,01,648 74,934 98,655 3,05,560
Total 5,86,433 31,29,315 23,03,356 24,28,912 84,48,016
238 | KERALA DEVELOPMENT REPORT 2021

Table 16.3 Monthly rations distributed, April to September 2020 in million tonnes
Month Total rice distributed Total wheat Total atta % of ration
(regular+PMGKAY+normal+ distributed (regular distributed all cards
Special) to all ration cards (AAY, +PMGKAY) all eligible ration availed
PHH, NPS, and NPNS) eligible ration cards cards (NPS
(AAY and PHH) and NPNS)
April 2,17,025.69 15,709.55 5,698.45 98
May 1,97,881.78 15,536.44 4,572.01 97.3
June 1,92,711.02 15,414.23 7,377.94 90.1
July 1,55,475.33 29,733.28 6,904.21 89
August 1,90,253.63 30,502.33 6,436.24 96.1
September 1,57,236.22 29,792.84 5,777.24 84.7
Total 11,10,583.67 1,36,688.68 36,766.09

items, which was distributed based on the feeding Government Department with the aid of voluntary
strength of the academic year 2019-20. The kit was agencies and Kudumbashree using their own fund.
distributed through SupplyCo stores. Details are given Adequate provisions were distributed to those
in the Table 16.4. workers who were willing to cook their own food.
ICDS food supplements 2. Camps run by employer or contractor: The workers
Anganwadis were closed as a preventive measure with in these camps were ensured with food and other
the outbreak of Covid-19. During the period from amenities by their employer or contractor. The
March 22, 2020, to September 30, 2020, 517841 officials of the Labour Department oversaw the
children under three years and 4,44,175 children activities.
in the age group of 3-6 years are given food by Take 3. Shelters scattered in rented buildings or converted
Home Ration (THR) scheme as part of Supplementary as camps: The workers here were provided with
Nutrition Programme. Accordingly, food items were cooked food through community kitchen.
provided to a total of 9,62,016 children in the above two Necessary provisions were disbursed to those
categories. Anganwadi workers delivered THR at the workers who could cook on their own by the
doorsteps of all beneficiaries. Amrutham Nutrimix was Labour department officials in coordination with
given to children of 0 to three years and a kit consisting the district administration.
of rice, green gram, and broken wheat were provided 4. Shelters scattered or workers not willing to join
(twice in a month) to children of age 3-6 years. camps: The migrant workers sheltered here were
provided with cooked food materials and other
Migrant workers
provisions by the Labour Department officials
Migrant labourers were also provided food and other
designated as camp coordinators. 
provision during the lockdown period. Camps were set
Food was prepared in 1165 community kitchens
up to ensure better facilities for migrant workers. The
which were started under 1034 Local Self Government
camps that were set up for the migrant labourers, were
Authorities and provided to 92,05,585 beneficiaries.
of four types.
Out of them, 4,34,280 were migrant workers.
1. Camps run by district administration: The workers
here were provided with cooked food through Social welfare pensions
the community kitchen run by the Local Self The present Government of Kerala streamlined the

Table 16.4 Food kits to students

Section Items in the Kit
Kit A- Pre-Primary 1.2 kg of Rice + 9 items of grocery worth Rs 297.50
Kit B-Primary (Class 1 to 5) 4 kg of Rice +9 items of grocery worth Rs 299.50
Kit C- Upper Primary (Class 6 to 8) 6 kg of Rice +9 items of grocery worth Rs 399.50
 RESPONSE TO COVID-19 | 239

distribution of the social welfare pensions and paid off The Government extended credit facility for
the arrears. The pension was gradually increased from employment generation by providing loans worth Rs
Rs 600 to Rs 1,300. The number of beneficiaries was 2,000 crore to self-help groups under Kudumbashree.
also increased from 35 lakh to 58 lakh during this Under this scheme, known as the Chief Minister’s
period. In the wake of Covid-19, the Government of Helping Hand Loan Scheme (CMHLS), each unit was
Kerala increased the social welfare pension by Rs 100 to to receive Rs 5000, Rs 10,000, or Rs 20,000, based on
Rs 1,600 and distributed it on a monthly basis as well. their financial status. The interest of loan will be borne
These measures further strengthened our comprehensive by the State Government. The tenure of the loan will be
social security net. 36 months with an initial moratorium of six months.
Kudumbashree Non-resident Keralites
The role of the Kudumbashree in Kerala’s Covid-19 The role played by non-resident Keralites in the growth
fight is multi-sectoral and substantial. Kudumbashree of Kerala’s economy has been well acknowledged. In
effectively intervened to meet the demand for masks and fact, Kerala is quite often referred to as a remittance
sanitisers arising out of the fight against the pandemic. economy. In the light of the economic hurdles this
Kudumbashree units started the production of cloth pandemic has created, non-resident Keralites have
masks from March 15, 2020 onwards and rapidly returned to Kerala in large numbers. Right from
increased their production. Starting from March 18, ensuring their wellbeing while they were abroad amidst
2020, Kudumbashree units also started producing the Covid-19 outbreak, to arranging for their safe return
sanitisers. to Kerala, the Government of Kerala has catered to their
Kudumbashree in convergence with local needs. A Covid Response Cell was set up in NORKA-
governments started community kitchens to prepare ROOTS with 24x7 helplines to provide assistance to
food and to home deliver to those under home NRKs. Help desks were set up in 14 countries, across
quarantine and for needy people. Joint Liability Groups the Gulf, Europe, North America, Africa and South
also supplied their crops to the community kitchens. East Asia.

Box 16.2
Role of Kudumbashree during Covid-19

Kudumbashree created a three-tier WhatsApp group to spread awareness among the people which currently
has 1.9 lakh groups with 22.5 lakh members. WhatsApp network was used for "Break the Chain'' campaign
and motivational campaign. NHG loan linkage programme initiated through Kudumbashree as NHGs
represents 45 lakh families. Kudumbashree volunteers actively took part in the activities for material
packing centres of local governments. Kudumbashree in convergence with Local Self-Governments started
community kitchen to prepare food and it was delivered to those under home quarantine and for needy
people.
Kudumbashree units started production of cloth masks from March 15, 2020 onwards and rapidly
increased their production. From March 15, 2020 to April 7, 2020 it produced 18.5 lakh masks. Starting
from March 18, 2020 till April 7, 2020 Kudumbashree units produced 4492.85 litres of sanitisers.
All elderly in the home quarantine were mapped by Kudumbashree and they are being called regularly
through phone connecting them to the health or local body if needed. Asraya and Snehitha Calling Bell
activities were strengthened In the context of the pandemic, Snehitha focussed on giving mental support to
people who are quarantined, their family members, elderly, women and children who are in the threat of
domestic violence, and also to the general public.
More than 16,268 Joint Liability Groups (JLGs) across the State voluntarily stood together for community
kitchens and donated their products generously for the social cause. Rice, banana, vegetables and tubers were
the important categories supplied as per local availability and requirements. The collection, transportation
and distribution activities were organised and coordinated by respective district mission teams in rapport
with the Local Self Government Institutions officials and peoples representatives.
240 | KERALA DEVELOPMENT REPORT 2021

The Chief Minister conducted video conferences A project called “Dream Kerala” has been
on April 5, April 26, and May 23, 2020 with formulated to reform the existing welfare programmes
prominent pravasis and representatives of pravasi and to include new ideas, so that return migrants could
organisations to ascertain the situation on the ground be benefitted. Measures are underway to take stock of
and bring relevant issues to the notice of the Central the skills and experience of return migrants as well, so
Government. Letters were written both to the Prime that programmes could be devised accordingly for their
Minister and the External Affairs Minister to arrange rehabilitation.
the safe return of those with expired visas and students To provide a livelihood for return emigrants by
whose educational institutions have been shut down promoting self-employment ventures, the Norka
owing to the pandemic. It was also requested that the Department has been providing interest-cum-capital
Government of India should provide air fare for those subsidy loans of up to Rs 30 lakh under Norka
who lost their jobs, those freed from jails, and labourers Department Project for Return Emigrants (NDPREM).
staying in camps. Priority was sought for those requiring The Department proposes to enhance the loan limit
immediate medical assistance, pregnant women and from 30 lakh to 50 lakh and interest subsidy from three
children, in returning to India. It was also requested per cent to five per cent.
that a rehabilitation package for return migrants should 100 Days, 100 Projects
be announced, and that special schemes for their skill The Government of Kerala in September 2020 launched
development should be administered. a “100 Days, 100 Projects” campaign. The aim was to
On April 26, 2020, NORKA initiated registration complete 100 projects in the State in 100 days as part
for migrants who wished to return to India. A total of of an action plan to revive the economy. The campaign
5,55,074 pravasis registered and NOCs granted for was to speed up projects which were delayed because of
2423 chartered flights. A sum of Rs 57.50 crore was the pandemic.
allotted to provide assistance to those who had returned As part of 100 days project, some of the major
with valid passports and job visas since January 1, 2020, interventions included the following. The Government
and were unable to return because of the lockdown, at declared base price for vegetables. The Government
Rs 5000 per person. Similarly, for pravasis who came continued its policy of ensuring food security so that no
in after January 2020, and contracted Covid-19, a sum one in in the State should go hungry. As part of the 100
of Rs 10,000 was issued as medical assistance as part of days programme, 1,16,440 jobs were created against a
the Santhwana Scheme. Online medical consultation target of 50,000 jobs.
was made available to pravasis through Quick Doctor The Kerala Youth Leadership Academy was set up
and Doctor on Call. An agreement was reached with to provide leadership training to the youth of Kerala.
DHL for medicines to be shipped to pravasis in foreign Inauguration of 34 renovated school buildings, and
countries on a discount.

Box 16.3
Youth and Covid-19

Youth movements were pervasively present in the measures to combat the issues that rose out of Covid-19 and
the associated lockdown. The volunteers of youth organisations cleaned the then yet-to-be completed Medical
College hospital in Kasaragod so as to turn it into a Covid-19 speciality centre. The youth organisations took
up the humanitarian act of cremating or burying the people who died because of the Covid-19 following
the protocol in force at the time. The youth organisations also participated in the preparation, packing, and
distribution of food from community kitchens. Kerala State Youth Welfare Board formed Kerala Voluntary
Youth Action Force in every nook and corner of the State to provide a helping hand to people unable to
venture outside their houses for buying essential items and medicines on account of the lockdown. The
volunteers reached out to the people on the basis of the phone calls received from them. The local volunteers
of the action force collected money and drew up the list of items needed including medicines. These items
were bought from the nearby grocery, vegetable, or medical shops and delivered to the needy.
 RESPONSE TO COVID-19 | 241

announcement of completion of hi-tech schools, and administrative sanction to start Kuttanad brand rice at
inauguration of 50 school buildings were done during Alappuzha, inauguration of construction of Alappuzha-
this period. Changanassery semi-elevated road, and launching of
Eighteen new buildings of district, and general, and Wayanad tunnel by Konkan Rail Corporation. Other
taluk hospitals were inaugurated. important achievements in 100 days included the
Sree Narayana Guru Open University, the first State-level inauguration of the Rs 200 crore Coastal
open university in the State, was inaugurated. The Vice Protection Project, the inauguration of the Jaljeevan
Chancellor, Pro Vice Chancellor and Registrar of the Mission State Level Project, the inauguration of the
University were appointed. Kochi Metro Rail from Thaikudam to Pettah and the
The milestones of the 100-day project included the completion of the GAIL Pipeline Project.
inauguration of a single-window system in Ease of Doing A second phase of the 100-days action plan was
Business, the completion of 50,000 houses as part of announced shortly after the local body elections.
the Life Mission, the announcement of complete solid With all these measures, even while fighting
waste management status to 589 local governments, Covid-19 on the one hand, the Government hopes to
the implementation of Integrated Local Governance reinvigorate various sectors such as education, health,
Management System (ILGMS) in 150 Local Self agriculture, industry, irrigation, electricity, sports,
Government Institutions, comprehensive rehabilitation culture, local government, and traditional sectors such
of expatriates and inauguration of Skill Depository, as coir and cashew on the other. The Government strives
announcement of second Kuttanad Package, removal to move forward with its commitment to development
of sediments at Thottapalli and facilitation of water and social justice even in the midst of this pandemic, so
flow, initiation of 3 electricity substations at Kuttanad, as to realise a new Kerala.
242 | KERALA DEVELOPMENT REPORT 2021

Chapter 17
Human Resources: Unleashing the Potential
Introduction For the first time, in 2017-18, there was a larger
Kerala has the potential to be India’s skilled-labour hub. share of regular wage workers than casual wage
The State’s skilled professional workers have been workers in the work force. The industrial structure of
the preferred choice of employers in India as well as employment in Kerala displays a maturing of structural
other parts of the world. transformation in employment as well, with more
The Government of Kerala recognises that skill workers entering non-farm sectors. Women, though
training and development play a crucial role in promoting they continue to be highly concentrated within a few
economic growth. A relative abundance of educated sectors, are diversifying to non-traditional sectors. The
and skilled workers, a long history of entrepreneurship, share of organised sector employment increased in
and exposure to the wider world are our strengths. As both rural and urban areas among men and women.
global manufacturing becomes more automated and There are signs of movement towards higher skills
knowledge-intensive, Kerala’s strengths with respect to among men and women in both sectors. However, such
school and higher education make it better equipped movement to non-conventional sectors is slow, and a
than most other States to deal with the new challenge. fifth of the total employment still continues to be in
Kerala’s economy has transformed from a slow elementary occupations. The change in the educational
growth, predominantly rural economy in the 1960s composition of workers in the sectors seems to suggest
into a fast-growing and services-oriented economy that the overall productivity growth in the economy
since the late 1980s. Today Kerala is one of the leading was indeed driven by two factors, namely, changes in
States in India in terms of per capita income, with sectoral growth and increasing skill component in high
the average income per person in the State being productivity sectors. This indicates that education and
approximately 1.5 times the Indian average (in 2019- skills play a very important role in productivity growth
20). Nevertheless, the impact of economic growth on in the economy.
employment creation has been mixed. Features of Kerala’s Labour Force
The creation of employment opportunities in the Changes in Demographic Structure
formal sectors of the economy has not been fast enough, On the demographic front, Kerala has successfully
especially so in comparison with the rising supply of transitioned from high birth and death rates to low
workers from the State. There has been a continuing birth and death rates. A sharp decline in fertility and
stream of migration of skilled workers, particularly the birth rates in the State occurred from the middle
nurses, engineers, and other professionals from Kerala of the twentieth century. The decline in fertility rate in
to other parts of the world. At the same time, inward Kerala has been much faster than in the rest of India.
migration of workers from other Indian States to Kerala In 1981, populations in the age group of 15-59 (also
has also been increasing steadily. Migrant workers have referred to as working age) years as proportions of the
a significant presence now in many areas of Kerala’s total populations of Kerala and India were 57.9 per
economy, in particular in sectors such as construction, cent and 53.9 per cent, respectively. Over the next two
which demand unskilled labour. decades, the proportion of the working-age population
Factors affecting both the supply of and demand (in total population) increased sharply in Kerala. In
for labour have undergone significant changes in 2001, the proportion of the working-age population
Kerala over the decades. The supply of labour in Kerala was 63.4 per cent in Kerala compared to 57 per cent in
has been influenced mainly by the changes in the India as a whole.17
demographic structure. At the same time, advances in However, the rate of growth of the working-age
the State in social development, improvements in social population in Kerala slowed down after 2001. Between
security benefits, and empowerment of workers have 2001 and 2011, the proportion of the working-age
been influencing the supply decisions of workers. The population (in total population) increased marginally
major demand side factors have been the acceleration in Kerala from 63.4 per cent to 63.9 per cent, whereas
in economic growth and the structural shift of the the corresponding increase was from 57.0 per cent
economy to a service-oriented economy. to 60.3 per cent (or by 3.3 percentage points) in the
Thomas and Jayesh (2019).
17
 LABOUR | 243

Table 17.1 Proportion of population in different age groups, Kerala and India, 1981 to 2011 in per cent
 Age groups 1981 1991 2001 2011
Kerala
0-14 35.0 29.7 26.1 23.4
15-29 30.3 30.2 27.5 23.6
30-59 27.2 31 35.9 40.3
60+ 7.5 8.8 10.5 12.6
Total 100 100 100 100
India
0-14 39.5 37.2 35.3 30.8
15-29 25.9 26.6 26.6 27.5
30-59 28 28.9 30.4 32.8
60+ 6.5 6.8 7.4 8.6
Total 100 100 100 100
Source: Census of India, various years (Thomas and Jayesh 2019)

country as whole. It appears that Kerala has already and 27.3 per cent, respectively, in rural and urban Kerala
reached a stage at which it can benefit only marginally in 2017-18 (Table 17.2). Although low, it is important
from the so-called demographic dividend. In contrast, to note that female labour force participation rates in
the size of the working-age population is set to increase Kerala are higher than the corresponding rates in the
sharply in many other Indian States, especially in the country as a whole, particularly in urban areas. In fact,
northern and eastern parts of the country, including Kerala has among the highest rates of female labour force
Uttar Pradesh and Bihar (Thomas and Jayesh 2019). participation in urban areas in the country. In 2011-
Labour Force Participation Rates 12, while labour force participation among women
The labour participation rate indicates the proportion in urban Kerala was 22.2 per cent, the corresponding
of the population that is economically active, which rates were only 10.9 per cent in Delhi, 13.5 per cent
include the employed as well as those unemployed but in Gujarat, 17.2 per cent in Karnataka, and 15.5 per
actively seeking jobs. The proportion of the population cent in India as a whole (as per the usual principal
that is employed is denoted by workforce participation and subsidiary status of workers) (Thomas and Jayesh
rate or worker population ratio. Persons who are not 2019). To repeat an earlier caveat, national labour
economically active comprise those who are too young force surveys underestimate women’s employment and
or too old to work, students, rentiers, recipients of labour force participation.
pensions or remittances, the disabled, as well as persons The LFPR in Kerala declined between 2011-12 and
attending to “domestic duties.” It must be noted here 2017-18 as did the share of part-time workers. The
that national labour force surveys have serious problems possible factors behind the declining share of labour
in terms of underestimation of women’s employment. force in the working-age population in the 2010s are
According to the Periodic Labour Force Survey increasing enrolment of persons aged 15 years and above
(PLFS), in 2017-18 labour force participation rates in colleges and other higher education institutions,
(or those in the labour force as proportions of the early retirement of persons in the older age groups, and
population aged 15 years and above) of males in rural withdrawal of working age women from the labour
and urban areas of Kerala were 71.1 per cent and 68.9 market. At the same time, trends from Kerala also point
per cent, respectively. These proportions were lower towards a growing preference for regular jobs and the
than the corresponding labour force participation rates declining importance of subsidiary workers (who are
among men in the country as whole (Table 17.2). engaged in the labour market as part-time workers or
Labour force participation rates (LFPR) among on a temporary or seasonal basis). To sum up, while the
females (aged 15 years and above) were 25.9 per cent overall labour force participation rates have declined,
244 | KERALA DEVELOPMENT REPORT 2021

Table 17.2 Labour force participation rates (UPSS) for persons aged 15 and above in Kerala, 2011-12 and 2017-
18 in per cent
  Rural male Rural female Urban male Urban female All persons

  2011- 2017- 2011- 2017- 2011- 2017- 2011- 2017- 2011- 2017-
12 18 12 18 12 18 12 18 12 18
Kerala 77.3 71.1 33.4 25.9 75.1 68.9 28.0 27.3 52.6 46.5
India 81.3 76.4 35.8 24.6 76.4 74.5 20.5 20.4 55.9 49.8
Source: National Sample Survey on Employment and Unemployment, 2011-12 and Periodic Labour Force Survey,
2017-18.
those who remain in the labour market are able to find It is essential that the future of Kerala’s development
more regular jobs. path move closely with the future of the young and the
In 2017-18, workforce participation rates (WPRs) or educated in the State.
workers as a proportion of population (aged 15-59 Sectoral Shares in Employment and Output
years) were 74.3 per cent and 72.2 per cent respectively The sector-wise distribution of employment in Kerala
among men in rural and urban areas of Kerala. indicates a maturing of structural transformation in
These proportions were lower than corresponding
employment in the State. In 2017-18, employment in
proportions among men in rural and urban areas of the
the primary sector was only 18 per cent of the total
country as a whole by one to two percentage points.
employment in Kerala, while the shares of secondary
In the case of women (aged 15 to 59 years), workforce
and tertiary sectors were 32 per cent and 50 per
participation rates in Kerala were marginally below the
cent respectively. At the same time, however, when
national average in rural areas but significantly above
compared with the transformation in the income
the national average in urban areas.
structure, there is still a structural lag in employment
Importantly, the trend towards casualisation has
been arrested: between 2011-12 and 2017-18, casual transformation in the State. While the share of the
wage employment (as a proportion of all principal status primary sector in Kerala’s GSDP declined from 14.4
workers, 15 years and above) declined from 37 per cent per cent in 2011-12 to 9.5 per cent in 2017-18, the
to 30 per cent, while regular employment increased sector’s share in employment remained stable at 18 per
from 28 per cent to 35 per cent. This welcome change cent during the period. In the case of the tertiary sector,
in employment is mainly due to increasing regular the share in GSDP increased from 57.5 per cent to 62.1
wage employment among women both in rural and per cent even when the share in employment remained
urban areas. For men also, regular wage employment unchanged at 50 per cent during the period.
increased in rural areas (Table 17.3). The above-referred changes in GSDP and
An analysis of unemployment rates across age employment shares have implications for changes in
groups shows that the problem is the most acute in the relative productivity of the different sectors. Between
age group of 15-29 years. Unemployment among the 2011-12 and 2017-18, the relative productivity of the
educated has been a serious area of concern in Kerala. primary sector declined from 0.72 to 0.51 while that of

Table 17.3 Usual Principal Status (UPS) workers by type of work (15 and above) in Kerala, 2011-12 and 2017-18
Employment Rural male Rural female Urban male Urban female All persons
Status/Year 2011- 2017- 2011- 2017- 2011- 2017- 2011- 2017- 2011- 2017-
12 18 12 18 12 18 12 18 12 18
Self-employed 37.8 40.0 29.8 25.4 36.3 40.1 28.6 20.7 35.2 36.0
Regular worker 15.9 24.9 30.1 46.6 32.2 31.7 53.5 63.8 27.9 34.5
Casual worker 46.3 35.1 40.1 28.0 31.6 28.2 17.9 15.5 36.9 29.5
Total 100 100 100 100 100 100 100 100 100 100
Source: National Sample Survey on Employment and Unemployment, 2011-12 and Periodic Labour Force Survey,
2017-18.
 LABOUR | 245

Table 17.4 Sectoral shares in employment and output

Sector Share in Share in GSDP Relative Change in Change
Employment (in %) (in %) Productivity employment in GDP
2011-12 2017-18 2011-12 2017-18 2011-12 2017-18 Share (in share (in
percentage percentage
points) points)
Primary 18.1 18.2 14.4 9.5 0.79 0.52 0.1 -4.9
Secondary 32.5 31.8 28.2 28.4 0.86 0.89 -0.7 0.2
Tertiary 49.4 50 57.5 62.1 1.16 1.24 0.6 4.7
All sectors 100 100 100 100 1.00 1.00 0 0
Source: National Sample Survey on Employment and Unemployment, 2011-12 and Periodic Labour Force Survey,
2017-18.

the service sector increased from 1.1 to 1.24, pointing 2011-12 to 2017-18. In the case of women, there has
towards an uneven transformation of the economy. been a decline in the share of the top three industries in
With the slower transformation in employment both rural and urban areas. Thus it can be inferred that
structure compared to GSDP structure, the gainers in although women’s employment is highly concentrated
the structural changes in Kerala are persons associated in a few sectors this condition is slowly changing. It is
with the service sector. of significance to note that the shift from agriculture to
Industrial Distribution of Workers other sectors had been mainly concentrated among the
The shift of the labour force away from agriculture and rural women.
other primary sector activities proceeded at a much Wages in Kerala
faster pace in Kerala than in the rest of India. In 2017- Kerala has among the highest-levels of wages for casual
18, according to PLFS data, the proportion of the male and casual female workers, whether in the rural
workforce engaged in agriculture and allied activities or urban areas (Papola and Kannan 2017; Abraham
was 20.3 per cent in Kerala while the corresponding 2007). As per the India Wage Report prepared by
proportion was 42 per cent in India as a whole. International Labour Organisation (ILO 2018), the
The major sectors providing employment in Kerala States with the consistent highest casual wages in both
are agriculture, construction, and trade, restaurants in rural and urban areas are Kerala, Jammu and Kashmir,
the case of rural men, and agriculture and community Punjab and Haryana.
and personal services in the case of rural women. Between The average wage rate in Kerala at all quarters is
2011-12 and 2017-18, with respect to shares in rural higher than that of India, both in urban and rural areas,
female employment, manufacturing and agriculture as per PLFS. The most important fact is that existing
declined while trade, restaurants, and community and wages in Kerala for casual workers is around 65 per cent
social services became more prominent. For urban men higher than that of India (Table 17.5). Although the
construction, trade restaurants, and transport storage wages of women in Kerala are lower than that of men,
are the more dominant industries while for urban wage rates for women in Kerala is 50 per cent more
women, community, social and personal services and than that of their counterparts at all India-level.
manufacturing are the dominant industries. In Kerala, casual and regular wage employment
In terms of industrial distribution of workers, the provided higher daily earnings compared to the earnings
women workers are highly concentrated in a few sectors received by self-employed workers. On the other hand,
compared to men. In 2017-18, the top three industries at the national-level, (daily) earnings received by the
accounted for 71 per cent and 72 per cent of the women self-employed are higher than the daily wage earnings
workers in rural and urban areas respectively. For men of casual workers in the case of rural men. This is the
this concentration is much lower at 63 per cent in rural reason for the persistence of self-employment in the
and 56 per cent in urban areas. Even though industry- Indian economy. Relatively low earnings by the self-
wise concentration of employment is lower for men employed could be the reason for the low and declining
than for women, the share of the top three industries share of self-employment in rural Kerala.
continue to remain the same in the case of men during The high-level of wages can also be gauged from the
246 | KERALA DEVELOPMENT REPORT 2021

Table 17.5 Average daily wages and earnings of workers in Kerala and India, 2018-19 in Rupees
Category of Rural Urban All
workers Male Female Persons Male Female Persons Male Female Persons
Regular Kerala 658 398 572 744 581 678 703 508 631
wage labour India 460 286 422 652 522 622 572 428 540
Casual wage Kerala 732 388 697 680 372 648 711 382 677
labour India 297 199 279 368 244 352 310 204 291
Self Kerala 444 135 392 514 207 459 473 166 420
employed India 320 145 297 552 228 506 376 167 348
Source: Periodic Labour Force Survey, 2017-18

data relating to the average daily wages of carpenters disciplining imposed on the State Governments through
and masons, which has registered a nearly fourfold the Fiscal Responsibilities and Budget Maintenance Act
increase from 2004 to 2016. Similarly, in the case of 2003 (FRBM Act 2003) has reduced the fiscal space for
unskilled agricultural workers, the daily wages for male all the States. In this context, it is interesting to note
and female workers have registered a threefold increase that the share of employment in the private sector has
from 2004 to 2014. been increasing in Kerala, particularly so in the case of
Formal and informal labour women.
According to official statistics (National Commission Building a Skilled Labour Force
For Enterprises in the Unorganised Sector), the labour The State’s industrial policy and information technology
market in Kerala, just as in the rest of the country, policy envisages rapid increase in investment in
continues to be dominated by informal workers. The different sectors. This calls for the highest-levels of
share of informal workers among rural men in the 2017- skill development and training to be made available to
18 in Kerala was 87 per cent. The figures for Kerala are the youth of Kerala for participation in the process of
not strictly comparable with those for the rest of India structural transformation of Kerala’s economy.
as workers classified as “informal” workers in Kerala Skill Convergence in Kerala
have access to a variety of social security benefits. For institutional strengthening at the national, state
An alternative source of data shows a different and district-level, the Kerala Academy for Skills
picture. The share of employment in the organised Excellence (KASE) has been designated as the State Skill
sector, defined in terms of the Factories Act and the Development Mission (SSDM). Various departments
Shops and Establishments Act, has risen between have their own skilling programmes, a fact that
2011-12 and 2017-18 in both rural and urban areas highlights the need for convergence across departments
across both men and females. Notably, it is female at the State-level.
employment that has gained massively during this
period with increase in both rural and urban areas. Additional Skills Acquisition Programme
Employment in the organised sector in Kerala The Additional Skill Acquisition Programme (ASAP),
has been driven by the public and the private sectors part of the State Skill Development Project (SSDP), was
in equal measure. About half of the organised sector launched in 2012 jointly by the Higher and General
employment is in the Government sector. However, Education Departments. It aims at tackling problems
as per the Economic Review of Kerala (2017) the total of educated unemployment by introducing market-
organised sector employment declined from 12.26 lakhs relevant foundation training, vocational training and
in 2000 to 11.85 lakhs in 2016. This decline is largely career counselling alongside the general curriculum at
due to a fall in the size of public sector employment, the higher secondary and undergraduate-levels. ASAP
while there has been a rise in private sector employment. has delivered skill training in the State to 2,01,409
This is reflective of the trends at the national-level with students from more than 1100 higher secondary
a growing role for the private sector. schools and arts and science colleges.
The decline in public sector employment is part Regular skill training programmes of ASAP. The
of a larger phenomenon at the national-level. Fiscal regular mode of training includes foundation skill
 SKILL DEVELOPMENT | 247

Table 17.6 Physical achievements of DDU-GKY, 2019-20 and 2020-21 in number

Name of the scheme Components Physical achievements (in number)
2019-20 2020-21 (up to September 30, 2020
DDU-GKY Persons trained 13,113 125
Persons appointed 9,957 120
Source: Kudumbashree Mission
training of 100 hours of communicative English and Development and Entrepreneurship, Government of
80 hours of basic IT skills. This is followed by an India. The Department implements two major schemes
assessment and certification by the language proficiency introduced by the Directorate General of Employment
test of the British Council (APTIS) with a fee structure and Training (DGE&T), namely, the Craftsman
determined by the State Government. Training Scheme and Apprenticeship Training Scheme.
ASAP has set up selected schools and colleges as Industrial Training Institutes
specialised training centres called Skill Development There are 99 Industrial Training Institutes (ITI) under
Centres (SDC) where skill training classes are carried out. the Industrial Training Department. Private ITIs are
Currently, foundation classes are conducted in 121 SDCs. also functioning in the State. There are a total of 35,772
Skill training programmes for Kudumbashree and seats in these ITIs; 30 per cent of seats are reserved for
SC/ST women candidates. There are 14 ITIs for women in the
Kudumbashree, the State poverty eradication mission, Government sector in Kerala.
was formed with the objective of poverty eradication India Skills Kerala, 2018 and 2019
through the empowerment of women. As a part of skill India Skills Kerala 2018 evoked an enthusiastic
development among women, this agency conducts response: 7422 participants registered for district-level
training programmes at the state-level. It is also the competitions and the finals. The winners represented
nodal agency of the centrally-sponsored programme Kerala at the national competition held from October 2
called Deendhayal Antyodaya Yojana-National Rural to 5, 2018 in New Delhi. Winners of India Skills Kerala
Livelihood Mission (DAY-NRLM) (Table 17.6). 2018 also represented India in various international skill
SC/ST skill-based training programmes. For people competitions, including Euro Skills 2019, Asia Skills
of the Scheduled Castes and Scheduled Tribes, the 2019, Hi Tech Russia 2019 and World Skills Australia
details of skill-based training programmes are given in 2019. Inspired by the resounding success of Skills
Table 17.7. Kerala 2018, the Department held India Skills Kerala
Industrial Training Department 2019 in February 2020 at Swapnanagari, Kozhikode.
The Industrial Training Department functions under ISO Certification
the Labour and Skills Department, Government Thirty-four Industrial Training Institutes have been
of Kerala. It is the state-level nodal agency for awarded ISO certification.
implementing the various skill development activities Technical Exchange Programme
of Director General of Training, Ministry of Skill Department introduced Technical Exchange Programme

Table 17.7 Skill trainings for persons belonging to Scheduled Castes and Scheduled Tribes, 2016-17 to 2020-21
Year No. of skill training conducted No. of persons Placement
No. of agencies No. of courses attended India Abroad
2016-17 3 5 457 288 1
2017-18 4 8 1430 1393
2018-19 6 14 870 659 10
2019-20 11 22 1148 306 11
2020-21 4 4 1450
(as on September 30, 2020)
Total 28 53 5355 2646 22
Source: SC/ST Departments, Government of Kerala
248 | KERALA DEVELOPMENT REPORT 2021

for ITI trainees. The main objective of the scheme is to Educational and Charitable Society, Idukki, Atheos
give training to trainees in training institutes abroad. In Institute of Skills Excellence, Palakkad; Intercad
2018-19, 46 trainees in various trades were selected to Systems Private Limited, Thiruvananthapuram; Blitz
participate in a training programme conducted by ITE Academy, Kochi; Sports and Management Research
Education Service Singapore. Institute, Thiruvananthapuram; and Thoughts
Naipunya Karmasena Academy, Thiruvananthapuram
The Naipunya Karmasena was formed by the Skill Training Programmes
Department to help solve electrical, plumbing, and Kaushal Kendras. KASE has set up Kaushal Kendras
carpentry problems that emerged following the flood. across Kerala as rural skill hub. Their objective is to
Naipunya Karmasena was made a permanent feature train rural candidates in a range of subjects, including
in 2020-21. digital literacy, communication skills, quantitative and
Placement Cell analytical aptitude, and financial literacy.
A total of 2139 trainees were placed in employment Kaushal Kendras offer courses in basic and
through the placement cell in 2019-20. intermediate English, quantitative aptitude and
International Skill Training and Employability analytical reasoning, digital literacy and computer
Programme (i-STEP) skills, and basic electrical training. Kaushal Kendras
Considering the peculiar demographic characteristics have been established in Kollam, Kozhikode, and
of the State of Kerala, unique skilling models have been Palakkad districts.
adopted by KASE with industry tie-ups and placement Kerala State Institute of Design (KSID). The Kerala
linkages. KASE associates with industrial partners or State Institute of Design (KSID) was established as
prospective employers or entrepreneurs through the a unit of KASE for the purpose of creating a vibrant
i-STEP (International Skill Training and Employability design community in Kerala through partnership
Programme), a single window initiative to associate between artisans, professional designers and the general
with the skill development mission of Government of public. It is supported by the National Institute of
Kerala. i-STEP is open to any sector of industry where Design (NID) Ahmedabad.
the skill gap is identified by the stakeholders. Project
Employability centres. The Government of Kerala,
proposals, with the aim of imparting employability skill
and 60 per cent assured placements, can be submitted through the Directorate of Employment and Training
for consideration under i-STEP initiative of KASE. and KASE has set up 10 employability centres in
Models under i-STEP are the districts of Ernakulam, Kannur, Kozhikode,
1) Centres of excellence (CoE), Kollam, Palakkad, Kottayam, Alappuzha, Thrissur,
2) Accreditation of skill training courses, and Malappuram, and Kasaragod.
3) Skill training programme Career Development Centres
Centres of excellence
In association with National Employment Service
KASE has set up centres of excellence in nursing Department, KASE is in the process of setting up
(Nursing Institute for Career Enhancement: NICE), Career Development Centres/Mini Employability
security skills (Centre for Advanced Training in Centres (CDC/MEC) across Kerala.
Security: CATS), oil and rigs (Enlighten Skill Training Protection of Labour Rights
Programme for Oil and Rig: ESPOIR), teaching, Kerala has a long tradition of protection of labour
water and waste water treatment (School of Water rights and trade union activity. In Kerala, the active role
Technology: SWAT), and construction (Indian Institute of trade unions in politics ensures that legitimate claims
of Infrastructure and Construction: IIIC). to rights are enacted as laws and policies of the State.
Accreditation
The Labour Department, established in 1946, is
Reputed skill training institutions can associate with the Government body that is entrusted with ensuring
KASE by receiving accreditation so as to enhance their smooth industrial relations. The Labour Department
reach and acceptance in attracting suitable candidates. conducts inspections of establishments under various
The institutions with which KASE is associated include labour laws such as the Inter-State Migrant Workmen
the Hedge School of Applied Economics, Kochi; (Regulation of Employment and Conditions of
Induscan Petroleum, Nilambur, Malappuram; SMEC Service) Act, 1979, Building and Other Construction
Automation Private Limited, Kochi; Dhanwanthari Workers (Regulation of Employment and Conditions
 LABOUR RIGHTS | 249

of Service) Act, 1996, Kerala Shops and Commercial provision to maintain a register of employment and
Establishment Act, 1960, Maternity Benefit Act 1961, wages in such cases.
Payment of Bonus Act 1965, and Payment of Wages • Kerala Shops and Commercial Establishment
Act 1936. (Amendment) Act, 2018 introduced provisions for
The Enforcement Wing of the Department of ensuring the following:
Labour is responsible for maintaining a worker-friendly i) Sitting facilities: In every shop and establishment
environment and ensuring that workers receive the suitable arrangements for sitting shall be provided
benefits they are legally entitled to. For ensuring that for employees.
workers get weekly leave, overtime pay, minimum ii) Consent from women employees on working
wages, seating facility and other benefits, special drives hours: An employer may employ women employees
are conducted at the State-level and squad inspections between 9 pm and 6 am after obtaining the consent
at the district-level. In addition, the wage protection of such women employees and ensuring that
system has been implemented to ensure minimum no female employee is employed between those
wages to workers in the unorganised sector and to hours other than in groups consisting of at least 5
ensure transparency in the distribution of wages. employees having a minimum of 2 female employees
The Wage Protection System (WPS)/e-payment is a and adequate protection of their dignity, honour
flagship programme of Labour Department of Kerala, and safety protection from sexual harassment,
introduced in 2015, which aims to disburse wages and facility for transportation from the shop or
through banks, and also to monitor such disbursements establishment to the doorstep of their residence.
to ensure the payment of minimum wages and above. iii) Constituted internal compliance committee for
The Labour Department is responsible for female employees.
maintaining cordial industrial relations. The industrial iv) Increased penalties on violations of provisions
disputes are settled mainly through the intervention under sitting facilities and also introduced penalty
of the conciliation officers through the process of for obstructing the inspector.
conciliation. If conciliation fails, the dispute is referred to v) Introduced provision for mandating eight hours
adjudication by Labour Courts/Industrial Tribunals. The working time for sales promotion employees.
Deputy Labour Officer (DLO) is also the conciliation vi) Introduced auto renewal facility which ensures
officer for the Kerala Head Load Workers Act, 1978. the applicant could automatically download
The Government of Kerala constitutes the Industrial their renewal approvals by online on payment of
Relations Committees to maintain industrial peace and prescribed fees.
harmony. At present there are 11 IRCs functioning • Maternity Benefit (Amendment) Act, 2017
for different sectors, including the motor transport i) Extension of maternity benefits: Introduced
industry, cashew industry, toddy tapping industry, coir maternity leave from 12 weeks to 26 weeks and
industry, private hospitals, textile industry, plantations, mandated to employees in both public and private
and the newspaper industry sector. Provided that the maximum period entitled
The present Government introduced the following to maternity benefit by a woman having two or more
items of labour legislation during its tenure: than two surviving children shall be twelve weeks
• The Minimum Wages Act (Kerala Amendment) of which not more than six weeks shall precede the
Act, 2017 date of her expected delivery.
This amendment, inter alia, increased the penalty ii) Every establishment which are having fifty or more
on non-payment of minimum wages to employees employees shall have the facility of crèche within
from Rs 500 to Rs 1 lakh. such distance as may be prescribed, either separately
• Amendment of Kerala Minimum Wages Rules, or along with common facilities.
1958 iii) Maternity benefit to private educational institutions:
A part of e-payment of wages for workers in Government of Kerala introduced maternity benefits
non-banking financial institutions, textile shops, to employees in private educational institutions
jewelleries, private hospitals, IT sector, self-financing including unaided schools and colleges.
education institutions, and the construction sector • The Industrial Dispute (Kerala Amendment) Act,
are made through banks. Such disbursements are 2017
monitored to ensure the payment of minimum Sales promotion employees were brought under the
wages. The Government of Kerala introduced a Act.
250 | KERALA DEVELOPMENT REPORT 2021

• Amendment of Kerala Contract Labour Labour Welfare Activities

(Regulation And Abolition) Rules, 1974 The Labour Department plays a key role in
• Amendment of Kerala Inter-State Migrant Workmen implementing labour welfare activities. There are
(Regulation Of Employment And Conditions Of 16 Welfare Fund Boards functioning under Labour
Service) Rules, 1983 Department and providing welfare amenities to the
• The Kerala Investment Promotion and Facilitation respective sector of labour. Other boards function
Act, 2018 under various departments, including the agriculture
• Kerala Shops and Commercial Establishments and industry departments. The number of workers
(Amendment) Ordinance, 2020 registered under the Welfare Fund Board of the Labour
• Payment of Wages Act Amendment Department is about 8,050,319 and those with the
Support to Workers During the Covid-19 other departments is about 1,177,723.
Lockdown All welfare funds are run under a tripartite system
Labour Welfare Boards announced ex-gratia financial with the employers, employees and Government
assistance to workers during the lockdown. Apart from contributing to the fund. If there are no employers then
direct financial assistance, some of the Boards have also the worker would be contributing a minimum amount
offered interest-free loans. to the fund. The welfare funds provide for various
Bonus was paid to all members of the Head Load contingent social securities such as life course events,
Workers Welfare Board before April 14, 2020. An emergencies and old age pension.
amount of Rs 30 crore was spent for 243,504 members. Apart from the Welfare Fund Boards there are
The Construction Welfare Board gave Rs 1000 programmes implemented by the Labour Department
to all members who had completed two years and for welfare of the unorganised sector workers.
renewed their membership in 2018. There were about These apart, schemes relevant to the migrant workers
15 lakh such members and an amount of Rs 200 crore are also being implemented. The welfare fund model
was spent. The Motor Workers Welfare Fund Board has been accepted by the Central Government that has
provided financial assistance. extended a similar model through the Unorganised
The Abkari Workers Welfare Board disbursed up to Workers Social Security Act 2008 of the Government
Rs 5000 each to bar workers as assistance, and up to Rs of India.
10,000 each as an interest-free loan. An amount of Rs Welfare funds and social security are of crucial
1000 each was distributed to all members working in importance for workers. The direct benefit is the
hospitals, petrol pumps, and gas agencies, and to self- security workers receive. Social security also enhances
employed persons by Kerala Shops and Commercial the reservation wage of workers and helps them bargain
Establishments Labour Welfare Board. An amount of better in the labour market.
Rs 10,000 each was paid to Covid-affected members, Social Security System for Workers in Kerala
and Rs 5000 each to members in isolation. Employees State Insurance (ESI)
The Kerala Agricultural Workers Welfare Fund Employees State Insurance (ESI) scheme of the
Board paid an amount of Rs 7500 each to its registered Government of India aims at providing assistance to
members who tested positive for Covid-19, and Rs employees in case of sickness, maternity, disablement
1000 each was paid to members who were in isolation and death due to employment injury and to provide
for Covid-19. medical care to insured persons and their families. The
Social Protection to Informal Sector Workers comprehensive social security provisions are based on
Workers in the unorganised sector need higher wages and the ESI Act 1948. This scheme covers all employees
higher returns to self-employment. The Kerala Welfare working in non-seasonal factories running on power
Fund Act was enacted in 1975. Under its provisions, that employ 10 or more persons, and factories not
welfare funds were established through a tripartite using power that employ 20 or more persons. It also
arrangement of the State, employers and employees. includes those working in shops, hotels, restaurants,
Workers (and self-employed persons) belonging to cinemas, road motor transport undertakings and
various sectors were covered under welfare schemes that newspaper establishments. Each insured employee
provide basic pensions and money for contingencies. At and their employer is required to contribute a certain
present, 24 such Welfare Fund Boards are functional, per cent of their wages to the ESIC every month. The
providing social security cover to workers. ceiling wage rates are revised from time to time. The ESI
 INFORMAL SECTOR WORKERS | 251

Box 17.1
Welfare Fund Boards under Labour Department of Kerala

1. Kerala Bamboo Kattuvalli and Pandanus Leaf Workers Welfare Fund Board
2. Kerala Handloom Workers Welfare Fund Board
3. Kerala Beedi and Cigar Workers Welfare Fund Board
4. Kerala Agricultural Workers Welfare Fund Board
5. Kerala Jewellery Workers Welfare Fund Board
6. Kerala Motor Transport Workers’ Welfare Fund Scheme
7. Kerala Tailoring Workers Welfare Fund Board
8. Kerala Labour Welfare Fund Board
9. Kerala Toddy Worker’s Welfare Fund Board
10. Kerala Abkari Workers Welfare Fund Board
11. Kerala State Unorganised Workers Social Security Board
12. Kerala Small Plantation Workers Welfare Fund Board
13. Kerala Head-Load Workers Welfare Board
14. The Kerala Building and Other Construction Workers’ Welfare Board
15. Kerala Cashew Workers Relief and Welfare Fund Board
16. Kerala Shops and Commercial Establishments Workers’ Welfare Fund Board

Scheme is a self-financing health insurance scheme and 2. Construction workers: Rs 200 crore was set apart
the contributions are raised from covered employees for financial support.
and their employers as a fixed per cent of wages. The 3. Motor Thozhilali Welfare Fund Board (total
payments are to be made on a monthly basis. members 954,242): Financial assistance varied from
Rs 5000 to Rs 1000 each for different categories of
Social Protection to Informal Workers in Kerala workers.
Several other welfare schemes are in force in the 4. Abkari Thozhilali Welfare Board paid Rs 5000
State. They include the Unorganised Daily Waged as assistance and an interest-free loan of up to Rs
Employees Distress Relief Fund, the Tree Climbers 10,000 to each worker.
Disability Pension Scheme, Maternity Allowances to 5. Kerala Shops and Commercial Establishments
Workers in the Unorganised Sector, the Estate Workers Thozhilali Welfare Board provided an amount of Rs
Distress Relief Fund, and income support to workers 1000 each to workers in hospitals, petrol pumps,
in traditional sector activities. Government assistance gas agencies and self-employed persons and Rs 5000
provided through such schemes for the last five years each to members who were affected by Covid-19
is given in Table 17.8. More than Rs 100 crore was and in isolation.
spent by the Government for informal-sector workers 6. Kerala Agricultural Workers Welfare Fund Board
through plan schemes under Labour Department (this paid Rs 7500 each to Covid-19 affected members
amount does not include payments through workers’ and Rs 1000 each to workers who were in isolation.
Welfare Boards or Kudumbashree). 7. Handloom Workers Welfare Fund Board paid Rs
Government Interventions During the Covid-19 750 each to all its members.
Pandemic 8. Kerala Beedi and Cigar Workers Welfare Fund
Many Labour Welfare Boards announced ex-gratia Board: An amount of Rs 2 crore to income support
financial assistance to workers. Apart from direct Scheme was set apart.
financial assistance, some Boards also offered workers Apart from these, the Government took steps to
interest-free loans. ensure food for all amidst the complete lockdown. The
1. Head-load workers: Rs 30 crore was set apart for the free food kit distribution through ration shops continued
distribution of bonus. There are 243,504 members even after lockdown. The Government put up shelter
registered in the board and bonus was given to all homes for the homeless. All the social security pensions
members. were distributed two months in advance to around 54
252 | KERALA DEVELOPMENT REPORT 2021

Table 17.8 Social Security Schemes for informal sector workers under Labour Department in Rs lakh
Name of the scheme 2016-17 2017-18 2018-19 2019-20 2020-21
Outlay Expen- Outlay Expen- Outlay Expen- Outlay Expen- Outlay Expen-
diture diture diture diture diture
Income support to 6500 6500 6500 5900.84 7000 7000 8000 6400 7500 7500
workers in traditional
sector activities
The unorganised 5 5 5 5 50 50 50 50 50 50
workers social security
scheme
Social protection for 0 0 458 456.04 500 487.19 500 482.88 450 442.61
unorganised sector
workers
Self-employment 1600 1600 1600 1811.91 1720 1720 1820 1820 1700 1682.3
scheme for the
registered unemployed
widows/deserted/
divorced/unmarried
women and unwedded
mother (SARANYA)
Rehabilitation and 0 168.01 100 100 55 55 210 210 300 26.28
welfare of differently
abled registrants of
employment (Kaivalya)
Total 8105 8273.01 8663 8273.79 9325 9312.19 10580 8962.88 10000 9701.19
Source: Plan Space

lakh people. The revival package of interest-free loan (2020) indicate that the stock of other-State migrants
distribution of Rs 2000 crore through Kudumbashree was much higher. While Narayana and Venkiteswaran
also largely benefitted informal workers. Welfare Fund (2013), based on a survey of railway passengers,
Board assistance, social security pensions, food kits estimated a population of 25 lakh domestic migrants,
and revival package of interest free loans were mainly Parida and Raman (2020), based on a sample survey,
intended to ensure the social security of informal sector suggested a figure of about 30 lakh in 2017-18.
workers and other vulnerable sections of the society Parida and Raman (2020) noted that the share
who lost livelihoods during the lockdown. of migrants reporting long-duration migration had
Migrant Workers and Kerala Economy declined, with a corresponding rise in the share of
Large numbers of migrant workers from other States short-duration and temporary seasonal migration for
come to Kerala every year. Migrant workers in Kerala construction work and in other jobs in the labour-
are referred to as “guest workers,” that is, guests of the intensive manufacturing and informal service sectors in
people of Kerala. Kerala. While the number and share of migrants from
We do not have accurate national data on the neighbouring States like Tamil Nadu, Karnataka, and
number of migrant workers in Kerala. According Maharashtra has been declining, domestic migration
to Census data, the number of other State migrants from West Bengal (41 per cent), Assam (31 per cent),
in Kerala increased from 4.5 lakh to about 6.5 lakh Uttar Pradesh (13 per cent), Bihar (four per cent),
(about a two-lakh increase) between 2001 and 2011 Odisha (four per cent) and Jharkhand (2.5 per cent)
(See Parida and Raman, 2020). This implies an annual has been rising sharply in these years. The migrants
growth rate of 4.5 per cent. The studies of Narayana from these backward States normally come to Kerala
and Venkiteswaran (2013) and Parida and Raman seasonally for employment, earn some surplus and go
 MIGRANT WORKERS | 253

back to their home States. As they visit their native Enrolment in the scheme is based on proof of
States three to four times a year, national-level surveys identity such as the Aadhar Card. About 5,09,363
like the Census and NSS fail to capture their migrant migrant workers are registered under the scheme. Of
status due to definitional issues. them 483,085 are male, 26,191 are female, and 87 are
Migrant workers contribute significantly to the transgender persons.
development of various sectors of the economy. They
Apna Ghar Project
are mostly engaged in unskilled and semi-skilled work
in sectors like agriculture, brick manufacture, masonry The Apna Ghar Project of Bhavanam Foundation
work, and as electricians, plumbers, and the like. A Kerala (BFK) was envisaged to provide good quality
large number of migrant workers work in steel factories, hostel accommodation on a rental basis to inter-state
mainly in Ernakulum, Kozhikode and Kannur districts. migrant workers in Kerala. The project is proposed to
A large number of them are concentrated in plywood be implemented in areas where there is a significant
factories, particularly in the Perumbavoor area. need for such accommodation for inter-state migrant
Given the important role these migrant workers play workers. The BFK has implemented various schemes
in driving the process of economic growth in Kerala, under the Apna Ghar project in different locations
special attention should be given to encourage and across Kerala. For example, the Apna Ghar Project,
protect them. Kerala is probably the first State in India Palakkad can accommodate 640 persons. It was
to introduce welfare schemes for migrant workers. commissioned in 2017-18. In addition, BFK is in
Aawaz the process of implementing three more schemes,
Aawaz is a health insurance scheme for migrant workers namely the Apna Ghar Project, Ramanattukara scheme
aimed at providing claims against accidental death (Rs (Kozhikode District), Apna Ghar Project, Kalamassery
2,00,000) disability due to accident (Rs 1,00,000), scheme (Ernakulum District), and Apna Ghar Project,
treatment benefit to the patients (Rs 25,000) with an Champazhanthy scheme (Thiruvananthapuram
objective of registering them and providing healthcare. District). The Government also intends to announce
An estimated population of 15 lakh individuals in a scheme for affordable rental housing for migrant
Kerala will be covered under the scheme. The process workers and the urban poor. The plan is to convert
of identifying the beneficiaries is carried out through an Government-funded housing in cities into Affordable
online portal. This scheme started on November 1, 2017. Rental Housing Complexes (ARHCs) in PPP mode.

Figure 17.1 Distribution of registered migrant workers from other States/Union Territories in the districts of
Kerala (as on August 31, 2020) as per Aawaz registration
254 | KERALA DEVELOPMENT REPORT 2021

Literacy Programme for Migrant Labourers Covid-19 Pandemic and Interventions for Migrant
(Changathi) Workers
Thousands of migrant workers from the northern When lockdown was declared in March 2020,
States were initiated into the world of letters as part of migrant workers were among the worst-hit sections
an ambitious literacy programme, called “Changathi,” of the population. There were approximately five lakh
of the Kerala State Literacy Mission Authority migrant workers at the time of lockdown in Kerala.
(KSLMA). The programme aims to teach the migrant Consequently, 4,34,280 persons were identified by the
labourers to read and write Malayalam and Hindi Labour Department as inter-state migrant workers who
within four months. The programme was launched had lost their jobs and incomes. They were sheltered
at Perumbavoor in Ernakulam District, which has the in 21,556 camps set up in different parts of the State.
largest concentration of migrant workers in the State. Food, water, and recreational facilities were provided to
A survey was conducted in 27 wards of Perumbavoor them in the camps.
As a result of intervention by the Labour
recently, and 400 beneficiaries had been identified for
Department, no migrant worker was deprived of food,
the education programme in the initial phase. A grand
drinking water and other necessary physical amenities.
welcome ceremony named Praveshanolsavam on the
The State set the best example by providing food to
lines of the welcome ceremony held at schools on the
workers through community kitchens managed by
opening day was held to encourage migrant workers
Kudumbashree. Kerala took care of migrant workers
join the literacy programme. Though migrant workers by providing them with decent accommodation, health
have been playing a key role in many sectors in the care and all their needs during lockdown period.
State, they are still facing exclusion in society. Mission The Government of Kerala worked to transport
introduced this programme aiming to end this social migrant workers in a phased manner to their home
exclusion by teaching them Malayalam, orient them to destinations. By June 3, 2020, 102 trains had
the culture of the State, apart from introducing them to carried more than 1,38,870 workers to various home
the social and cultural features of the State, and creating destinations. A detailed plan was made to send all
legal and health-related awareness. migrant workers who wanted to go back to their homes
“Hamari Malayalam”: A text book exclusively for and trains were scheduled accordingly.
migrants The Labour Department opened helplines and call
The study material has been prepared keeping in mind centres in all districts and a call centre at the Labour
the working conditions of migrant workers and their Commissionerate in order to address the problems of
interaction with the society. Titled “Hamari Malayalam” migrant workers. Multilingual personnel were deployed
(Our Malayalam), the book has 25 chapters on various in call centres.
subjects, ranging from hygiene, health, and technology The “Kerala model” of migrant management has
to the rights of workers. The book is designed not just been lauded by many. Migrant workers in Kerala
to teach Malayalam but also basic lessons in sanitation, continue to have the benefits of a labour-welfare-
health, and social values. oriented social system.
Way Forward
Awareness programme for inter-State migrant
(ISM) workers As mentioned at the start of this chapter, Kerala’s
Under the scheme, information regarding the various strengths with respect to school and higher education
welfare schemes and statutory entitlements of ISM make it uniquely placed to deal with new developments
workers is disseminated across the State. It works in in skilled employment and knowledge-based
every district through the District Labour Offices. employment.
The “Future of Work” debates and research point
Medical camp out the fast-changing nature of work as a result of the
Government-funded medical camps are conducted in development of information and communications
each district of the State exclusively for the ISM workers. technology. Some of the areas in which Kerala has made
Migrant-worker-friendly accommodation a start in this respect are robotics, machine learning,
This new Plan scheme of 2021-22 proposes to artificial intelligence, and 3D printing. The Covid-19
standardise the safety, sanitation, and cleanliness pandemic and the evolving situation have added new
conditions in accommodation. dimensions to the Future of Work. While disruptions
 MIGRANT WORKERS | 255

in some sectors are evident, new opportunities and undertaken various policies to equip its young population
requirements are emerging in significant areas. We with skills in cutting-edge sectors to effectively create
must make available the most modern skill training and employment opportunities in the State. Conscious
development to prepare Kerala’s youth for opportunities policy initiatives have been undertaken to promote,
in skilled employment in these sectors. establish, monitor and regulate institutions and
Further, certain sectors such as IT-enabled services, academies that are known for excellence in promoting
transport, storage and communication, banking and modern skills and familiarity with technology that
insurance, construction sector, health care and medical meets the demands of new industries in Kerala, other
equipment, food processing and tourism and hospitality parts of India, and globally.
have significant employment possibilities in Kerala. References
Continuous reskilling programmes are also required. Papola, T. S., and Kannan, K. P. (2017), “Towards
Skill training programmes should also be used as an India Wage Report,” International Labour
instruments of empowerment and social change. They Organisation, ILO Asia-Pacific Working Paper Series
should include, for instance, specialised training in Abraham, Vinoj (2013), “Missing Labour or
emerging areas for women and young men and women Consistent ‘De-Feminisation?’” Economic and Political
of the scheduled tribes and scheduled castes. Weekly, vol. 48, no. 31, pp. 99–108, available at
The international experiences on successful http://www.jstor.org/stable/23527947
employment policies and strategies indicate the role of Abraham, Vinoj (2019), “Jobless growth through the
the State in developing an integrated skill development lens of structural transformation,” Indian Growth and
policy framework and systems. Such a system recognises Development Review, vol. 12, no. 2, pp. 182–201,
the linkages between education – higher secondary and available at https://doi.org/10.1108/IGDR-07-2018-
tertiary – and industry and employers’ needs. 0077.
The International Labour Organisation (ILO) in International Labour Organisation (2020), “Roadmap
particular has delineated the three areas with respect to for Developing a Policy Framework for the Inclusion
skilling, that is, of Internal Migrant Workers in India.”
1) linking training to current labour market needs as Thomas, Jayan Jose, and M. P. Jayesh (2019), “Labour
well as anticipating and building competencies for Market in Kerala: Examining the Role of Industrial
the jobs of the future; and Employment Policies,” in K. R. Shyam Sundar
2) building quality apprenticeship systems and (ed.), “Globalisation, Labour Market Institutions,
incorporating core skills into training for young Processes and Policies in India,” Palgrave Macmillan,
people; and pp. 471–98.
3) expanding access to employment related training Parida, J., and Raman, K. R. (2020), “Migration
in order to equip women and men to work in the and Urbanisation,” in S. Rajan, and S. M.
formal economy. (eds.), Handbook of Internal Migration in India, pp.
These areas are of significance to Kerala. 449–61, SAGE Publications Pvt Ltd, https://www.doi.
In the last five years, the Government of Kerala has org/10.4135/9789353287788.n32 
256 | KERALA DEVELOPMENT REPORT 2021

Chapter 18
Scheduled Caste and Scheduled Tribes:
Ensuring Inclusive Development
The struggle against caste and the criminal practices Caste Sub-Plan (SCSP) for the people of the Scheduled
of untouchability and similar forms of social exclusion Castes, and the Tribal Sub-Plan (TSP) for the people
was an intrinsic part of the struggle for freedom and of the Scheduled Tribes would exceed the share of the
socio-economic development in Kerala. When the population of Scheduled Castes and Scheduled Tribes
Government came to office in 2016, it took efforts to in the State.
build on this historical legacy.
Scheduled Castes
In the 13th Plan, the Government made a
commitment that the planning process will work Scheduled Castes in Kerala
to protect the rights of the people of the Scheduled According to the Census of 2011, the Scheduled Caste
Castes (SC) and Scheduled Tribes (ST), and to expand population of Kerala is 30,39,573 persons constituting
the socio-economic achievements of all people of the 9.10 per cent of the total population of the State. There
Scheduled Castes and Scheduled Tribes in the State. are 53 communities among the Scheduled Castes. The
It also ensured that the allocations to the Scheduled proportion of none of the Scheduled Castes in the

Table 18.1 Allocation of Scheduled Caste Sub-Plan funds to Scheduled Caste Development Department and
local governments, Kerala, 2016-17 to 2020-21 in Rs crore
Year Total SCSP SCSP Department Local governments
State funds funds as
Plan from per cent Department Department local local governments
outlay State of total Outlay outlay as per govern- outlay as per cent of
Plan State Plan cent of SCSP ments SCSP funds
outlay outlay funds Outlay
2016-17 24000 2354.40 9.81 1315.50 55.87 1038.90 44.13
2017-18 26500 2599.65 9.81 1427.60 54.92 1172.05 45.08
2018-19 29150 2859.62 9.81 1570.36 54.91 1289.26 45.09
2019-20 30610 3002.84 9.81 1649.00 54.91 1353.84 45.09
2020-21 27610 2708.54 9.81 1487.39 54.91 1221.15 45.09
Total 137,870 13,525.05 9.81 7449.85 55.08 6075.2 44.92
Source: Annual Plans, Government of Kerala

Table 18. 2 Outlay and Expenditure of Scheduled Caste Sub-Plan funds, Kerala, 2016-17 to 2020-21 in Rs crore
Year SCSP Department Local governments
Outlay Outlay Expenditure % of Outlay Expenditure % of
expenditure expenditure
2016-17 2354.40 1315.50 1126.88 85.66 1038.90 726.02 69.88
2017-18 2599.70 1427.60 1275.27 89.33 1172.05 936.6 79.91
2018-19 2859.60 1570.36 1167.40 74.34 1289.26 1070.07 82.99
2019-20 3002.80 1649.00 674.64 40.91 1353.84 734.61 54.26
2020-21 2708.54 1221.15 881.77 72.21 1487.39 926.35 62.28
Total 13525.04 6075.2 4349.07 71.58 7449.85 5170.54 69.40
Note: 2019-20 and 2020-21 figures are from Planspace.
Source: Budget Document, Government of Kerala
 SCHEDULED CASTES AND TRIBES | 257

population is highest in Palakkad district (13.29 per in 2018-19 and 75 per cent in 2019-20. Expenditure-
cent) followed by Thiruvananthapuram (12.27 per cent), levels improved in 2020-21.
Kollam (10.80 per cent), Thrissur (10.67 per cent), Major interventions by the Government and
and Malappuram (10.14 per cent). These five districts achievements in the 13th Plan (2017-18 to 2021-22)
together account for more than half (57.17 per cent) of The main thrust of the 13th Plan in respect of the
the total Scheduled Caste population in the State. people of the Scheduled Castes and Tribes was in the
Communities such as Vedar, Nayadi, Kalladi, following spheres:
Arundhathiar/Chakkiliar are identified as the vulnerable 1) Land, homesteads, and housing.
communities among Scheduled Castes and they are 2) Education: to ensure full access to the best
concentrated in Palakkad, Malappuram, Kollam, and educational facilities at all levels: primary,
Idukki districts. The people of these specific Scheduled secondary, and higher education and research.
Castes are 3.65 per cent of the total Scheduled Caste 3) Skill development: to prepare a new generation
population in the State (Scheduled Caste Survey for modern employment, enabling them to seek
Report, 2008). employment in Kerala and elsewhere.
Allocation and expenditure of Scheduled Caste 4) Employment: to ensure that places reserved for
Sub-Plan (SCSP) funds, 2016-17 to 2020-21 Scheduled Castes and Tribes are filled.
Every year, the State Government earmarks a portion 5) Food security
of the State Plan outlay as the Scheduled Caste Sub- The major schemes and programmes by the
Plan (SCSP) fund. Of this allocation, close to 55 per Government and the progress made on each front are
cent is allocated to the Scheduled Castes Development enumerated in the following section.
Department (SCDD) and 45 per cent is allocated to Land, homesteads, and housing. The Government
local governments for implementation of schemes provides financial assistance to persons belonging to
under decentralised planning. The year-wise allocation Scheduled Castes for purchase of land and construction
of SCSP funds is given in Table 18.1. of house. From 2016-17 to 2020-21, Rs 94,997 lakh
From 2016-17 to 2020-21, Rs 13, 525.05 crore was earmarked for land purchase scheme and 81.12 per
was earmarked as SCSP fund for the welfare of people cent of expenditure was incurred in this programme.
of the Scheduled Castes, of which, Rs 7,449.85 crore Rs 1,54,500 lakh was earmarked for construction of
was allocated to the Scheduled Castes Development houses and more than 100 per cent expenditure was
Department and Rs 6, 075.20 crore to local incurred. Details of outlay and expenditure incurred
governments. The percentage of SCSP flow from total under this scheme from 2016-17 to 2020-21 are in
State Plan outlay was 9.81 in this period, higher than Table 18.3.
the proportion of Scheduled Castes population (9.1 per In 2016-17 and 2017-18, houses were sanctioned
cent as per 2011 Census). directly by the Department. From 2018-19 onwards,
The outlay and expenditure of SCSP funds from construction of new houses was undertaken through
2016-17 to 2020-21 is given in Table 18.2. the LIFE Mission. As per the estimates of the Mission,
The expenditure by local governments increased there were 75,355 houseless people belonging to the
from 70 per cent of the outlay in 2016-17 to 83 per Scheduled Castes in Kerala. Of these 20,796 families
cent in 2018-19. In 2019-20, expenditure by local owned land and the rest of them were landless. The
governments in general was affected by treasury Mission offered two options to the landless: to avail
restrictions. The expenditure under Scheduled Castes of assistance at Rs 2.25 lakh for three cents in gram
Development Department also declined in 2018-19 panchayat, at Rs 4.5 lakh in municipalities, and at Rs
and 2019-20. This was mainly because of duplication of 6.00 lakh in corporation limits to purchase land or to
schemes and lack of uniformity in rates of assistance of avail of dwelling units constructed by the Mission in 28
schemes implemented by the Department and LSGIs. towns across the State.
Further, in 2018-19, there was a reduction in plan outlay The total houses sanctioned and constructed under
to all sectors to meet flood related rehabilitation and schemes of the Department and LIFE Mission from
restoration expenses. In 2019-20, the resource crunch 2016-17 to 2019-20 were 49,746 and 29,542 respectively.
faced by the State resulted in low expenditure by the Education. There are 85 nursery schools, nine model
Department. The expenditure-level of the Department residential schools, 44 industrial training institutes, 87
with respect to revised outlay, however, was 92 per cent pre-matric hostels, 17 post-matric hostels, four pre-
258 | KERALA DEVELOPMENT REPORT 2021

Table 18.3 Outlay and expenditure for land and housing by Scheduled Caste Development Department, Kerala,
2016-17 to 2020-21 in Rs lakh
Year Land Housing
  Outlay Expenditure % of expenditure Outlay Expenditure % of expenditure
2016-17 17497 17573.61 100.44 26500 37362.4 140.99
2017-18 18000 17871.2 99.28 50000 56873 113.75
2018-19 22500 15468.05 68.75 38000 43660.2 114.9
2019-20 18500 16187.04 87.50 20000 13513.4 67.57
2020-21 18500 10287.25 55.60 20000 22344.77 111.72
Total 94997 77061.88 81.12 154500 173753.7 112.46
Source: Scheduled Caste Development Department, Government of Kerala
Table 18.4 Houses sanctioned and completed for Scheduled Castes, Kerala, 2016-17 to 2019-20 in number
Year Scheduled Caste LIFE Phase 1 LIFE Phase 2 (beneficiaries
Development Department ( incomplete houses)** with land)**
Sanctioned Completed Sanctioned Completed Sanctioned Completed
2016-17 14906 11440 3893 3843 21807 7506
2017-18 8895 6670
2018-19 245* 83
2019-20 0 0
Total 24046 18193 3893 3843 21807 7506
Note: * Construction of houses affected by the floods of 2018.
**Year-wise break up of houses constructed through LIFE Mission is not given.
Source: Scheduled Caste Development Department and LIFE Mission, Government of Kerala
examination training centres, a community college in to a student who gets admission in such universities.
Vadakkancherry, and a medical college in Palakkad Padanamuri. Another remarkable achievement for
functioning under the control of the Scheduled promoting education in this period was construction
Castes Development Department. In addition to of study rooms, Padanamuri, in the houses of students
infrastructure facilities, the Government provides belonging to the Scheduled Castes studying in high
various types of educational assistance, such as primary school and higher secondary classes in government or
education aid, lump sum grants, stipends, pre-matric aided or special or technical schools. This facility was
and post-matric scholarships, and overseas scholarships provided to students whose parents’ annual income
for study abroad. Yearwise outlay and expenditure for was lesser than Rs 1 lakh. The scheme provides Rs 2
education from 2016-17 to 2020-21 are in Table 18.5. lakh to each student to construct an additional room
The major programmes and progress made in the (120 square feet) in their house; the room is further
field of education are as follows. equipped with facilities such as a table and chair,
Revision of rate of educational assistance. The rates bookshelf, lights, and fan. The scheme was started in
of assistance including lump sum grants, stipends, 2017-18. 24,543 study rooms have been sanctioned,
and scholarships given to students belonging to the out of which 15,762 have been completed.
Scheduled Castes for pre-matric, post-matric and Additional assistance to post-matric students. For
professional courses were enhanced in 2019. encouraging post-matric education, a new scheme,
Assistance for studying abroad. A major achievement called “Additional assistance to post matric students”
during the last four years is that 37 students belonging was started in 2018-19. Under this scheme, the State
to the Scheduled Castes have been provided assistance Government provides assistance to the post-matric
to study in top ranked (first 500) universities in the students who are not availing any scholarships from
world. The Department provides Rs 25 lakh per course Government of India.
 SCHEDULED CASTES AND TRIBES | 259

Table 18.5 Outlay and expenditure for education by Scheduled Caste Development Department,
Kerala, 2016-17 to 2020-21 in Rs lakh
Year Outlay Expenditure % of expenditure
2016-17 38000 13190.55 34.71
2017-18 40410 23675.99 58.59
2018-19 40549 25178.93 62.10
2019-20 25000 10874.42 43.50
2020-21 24500 13367.38 54.56
Total 168459 85503.41 50.78
Source: Scheduled Caste Development Department, Government of Kerala

Other major physical achievements from 2016-17 to income limit of not more than Rs 2.50 lakh. Assistance
2020-21, is provided to meet the expenses of job visas, passports,
1. 8,475 students were provided assistance to buy and travel charges. In the last four years, 1,610 youth
laptops and 1,506 MBBS students were provided belonging to the Scheduled Caste have been placed in
assistance to purchase stethoscopes. employment abroad. The rate of assistance was increased
2. Entrance coaching was given to 2,617 students. from Rs 50,000 to Rs 100,000 in 2016-17. Details of
3. Career orientation programmes were conducted at the number of persons who availed self-employment
the higher secondary-level in all districts. subsidy and assistance for seeking job abroad are given
Livelihood. For providing livelihood security to in Table 18.7.
people of the Scheduled Castes, income-generating Food Craft Institute, Palakkad. In 2018-19, a Food
programmes such as self-employment schemes, Craft Institute was started in Palakkad district by
assistance for seeking job abroad, and job oriented the Tourism Department in association with the
training programmes were undertaken under the Scheduled Castes and Scheduled Tribes Development
scheme “Training, Employment and Human Resource Departments. It provides training in hotel management
Development.” Self-employment assistance is given to students and jobs are ensured for the candidates in
to individuals and self-help groups. One-third of the various institutions under the Tourism Department.
loan is given as a subsidy to undertake self-employment Handholding cell and mobile app. One of the major
ventures. The year-wise outlay and expenditure for the initiatives undertaken by the Department was the
scheme is in Table 18.6 creation of a “Handholding Cell” for equipping youth
The major physical achievements in the sphere of belonging to Scheduled Castes through awareness
livelihoods are as follows. programmes. A mobile app was created to provide
Assistance for foreign employment who are seeking information and guidelines about the activities of the
employment abroad. Financial assistance of Rs 1 lakh Cell. Youth who register in this app get information
is given to students belonging to the Scheduled Castes regarding higher education, job opportunities, and the
within the age group 20-50 years and have an annual welfare schemes of the Department.
Table 18.6 Outlay and expenditure for the “Training, employment, and human resource development” scheme
of Scheduled Caste Development Department, Kerala, 2016-17 to 2020-21 in Rs lakh
Year Outlay Expenditure % of expenditure
2016-17 4000 3313.61 82.84
2017-18 4000 3568.41 89.21
2018-19 4300 4193.17 97.52
2019-20 3800 3379.89 88.94
2020-21 5000 2979.65 59.59
Total 21,100 17,344.22 82.20
Source: Scheduled Caste Development Department, Government of Kerala
260 | KERALA DEVELOPMENT REPORT 2021

Table 18.7 Number of persons availed who self- Infrastructure Development in Scheduled Castes
employment subsidy and assistance for seeking job Residential Settlements. For providing better
abroad provided by Scheduled Caste Development infrastructure facilities in residential settlements, the
Department, Kerala, 2016-17 to 2019-20 “Ambedkar Village Development Scheme” was
started in settlements where more than 30 families
Number of persons
belonging to the Scheduled Castes live. Under this
Year Self- Assistance for scheme, Rs 1.00 crore is provided to each settlement
employment seeking job to undertake development activities, including the
subsidy abroad provision of drinking water, toilets and sanitation,
2016-17 542 446 waste management arrangements, road connectivity,
2017-18 406 446 electrification, the construction of land protection
walls, irrigation, playgrounds, community halls, home
2018-19 297 318 renovation, financial support for income-generating
2019-20 207 1922* activities, and assistance for protection and renovation
Total 1452 3132 of burial grounds. Development activities were
completed in 50 villages between 2016-17 to 2019-20.
Note: * Includes numbers from previous years.
Source: Scheduled Caste Development Department, Social Development Programmes
Government of Kerala Vinjanwadis. Vinjanwadis in Scheduled Caste
Online web portal of Gadhika products. In 2018-
residential settlements include facilities such as libraries,
reading rooms, computers with internet facilities,
19, a new initiative, “Gadhika” on Amazon online
newspapers, journals and periodicals, and necessary
portal was launched for marketing products made by
furniture. At present, there are 143 Vinjanwadis
entrepreneurs belong to the Scheduled Castes. A variety
functioning in the State.
of handicrafts and traditional utensils – at present,
nearly 20 items – are marketed through this online Special package for vulnerable communities. The
portal. major problems faced by the vulnerable communities
among Scheduled Castes, such as Vedar, Nayadi,
Healthcare. The Government started a separate
Kalladi and Arundhathiar/Chakkiliar, involve land,
healthcare scheme in 2018-19. Until 2018-19,
housing, drinking water, electricity, education, and job-
healthcare programmes were implemented under the
oriented training. A special package was included in
“Corpus Fund,” which included allocations for several
the State Plan in 2018-19 to address these issues. This
other purposes as well. Under the healthcare scheme,
package includes integrated settlement development,
financial assistance for treatment was provided to
completion of spill over houses, Samuhyapadanamuri,
beneficiaries. The number of persons benefitted by the training on skill development and employment,
scheme is given in Table 18. 8. and special tuition. A new programme for providing
Table 18.8 Number of persons benefited under assistance for the purchase of agricultural land (up to a
healthcare scheme of Scheduled Caste Development maximum of Rs 10.00 lakh for purchasing a minimum
Department, Kerala, 2016-17 to 2019-20 of 25 cents of land) has also been introduced.
Year No. of persons who received Revision in rate of marriage assistance. Marriage
treatment assistance assistance of Rs 75,000 is given to the parents of girls
2016-17* 23073 belonging to the Scheduled Castes who have an annual
income of less than Rs 1 lakh. In 2016-17, the rate of
2017-18* 24423
marriage assistance was enhanced from Rs 50,000 to
2018-19 30844 75,000. Yearwise details of outlay and expenditure and
2019-20 15658 number of families benefited under the scheme are in
Total 93998 Table 18.9.
Note: * Scheme was included under “Corpus Fund” Working women’s hostels. In 2018-19, a new scheme
scheme was started for the construction of working women’s
Source: Scheduled Caste Development Department, hostels. In the first phase, construction of hostels in
Government of Kerala Thiruvananthapuram, Ernakulam, and Kozhikode
 SCHEDULED CASTES AND TRIBES | 261

Table 18.9 Outlay and expenditure for marriage assistance and number of families benefited from the assistance
by Scheduled Caste Development Department, Kerala, 2016-17 to 2019-20 in Rs lakh and per cent
Year Outlay Expenditure % of No. of families availed
(in Rs lakh) (in Rs lakh) expenditure assistance
2016-17 5000 5259.60 105.19 10523
2017-18 5500 5851.54 106.39 8921
2018-19 6500 5513.40 84.82 7291
2019-20 7000 6274.00 89.63 8677
2020-21 7000 6106.70 87.23 7011
Total 31000 29005.24 93.56 42423
Source: Scheduled Caste Development Department, Government of Kerala

districts was proposed. The construction work in was organised to provide guidance to writers and 48
Thiruvananthapuram district is nearly complete. youth belonging to the Scheduled Castes participated
Valsalyanidhi. An insurance linked social security in the programme.
scheme Valsalyanidhi was started in 2017-18 for girl Review of Government Interventions
children belonging to the Scheduled Caste. Under The policy of the Government was to ensure that the
this scheme, the Scheduled Castes Development basic need for decent housing is made available to all
Department deposits Rs 1,38,000 in the name of the persons belong to the Scheduled Castes. The provision
child in a Life Insurance Company in 4 installments – of this basic necessity was brought under the umbrella of
Rs 30,000 as first installment, when the child attains 6 the LIFE Mission, the major housing programme of the
months, Rs 33,000 as a second installment when the Government. Important interventions were also made
child gets admission in primary school and attains 5 in the field of education by creating Padanamuris and
years, Rs 36,000 as a third installment on the child increasing the rates of financial assistance to students.
reaching the 5th standard or at the age of 10, and A remarkable feature in the sphere of education was
Rs 39,000 as a fourth installment on the completion providing assistance to students to study in top ranked
of 10th standard. Rs 3,00,000 is assured at 18 years. universities of the world. Health care received exclusive
Educational assistance of Rs 1000 is also given to the attention as it was made available through a separate
brother or sister of the girl child studying from 9th scheme. The Government made significant efforts to
standard to 12th standard. At present, 4724 girls have improve the infrastructure in the Scheduled Castes
been registered under this programme. residential settlements. The Government sought
Floods. The heavy rainfall in August, 2018 and to balance its effort between welfare and income
consequent floods significantly affected the houses enhancement strategies. Livelihood creation was a key
of persons belonging to Scheduled Castes located in to this effort. Even in the midst of financial constraints,
low lying areas; 2,632 houses completely collapsed the Government maintained the share of funds of
and 11,223 houses partially collapsed. In 2018-19, Scheduled Caste Sub Plan at 9.81 per cent.
assistance was given to re-build 245 houses that were Challenges and Way Ahead
damaged in floods. Financial assistance of Rs 5,000 was Despite the significant advancement made in improving
distributed to 83,872 flood-affected families belonging the lives of people of the Scheduled Castes, there are
to the Scheduled Castes. challenges that still need attention.
Cultural Programmes. The Scheduled Castes (i)
Traditional residential settlements of persons
Development Department publishes a journal called belonging to Scheduled Caste are located in low–
Padavukal, which includes features and articles lying areas and frequently face damage from rainfall.
illustrating the status of people of the Scheduled Castes, This makes them vulnerable not only during floods
stories, poems, and details of schemes implemented but also in normal monsoon seasons. Scheduled
by the State and Central Government. Dr Ambedkar Caste residential settlements therefore need to be
media award is given for the best report writer. In located in areas that are habitable and safe from
2018-19, a literary workshop namely “Ranthal-2018” extreme rainfall events.
262 | KERALA DEVELOPMENT REPORT 2021

(ii) There are rates of dropping out in professional in the State (1.45 per cent as per Census 2011)
courses. The allocation to TSP in the last five years has
(iii) More access to opportunities for educated work been consistent at 2.83 per cent of the State Plan
seekers in public and private sectors is needed. (Table 18.10). The outlay is divided between the local
(iv) There is duplication in selection of beneficiaries and governments and in Scheduled Tribe Development
differences in the rate of assistance for same schemes Department (STDD) as shown in Table 18.11.
implemented by Scheduled Castes Department and Between 2016-17 and 2020-21 the Government has
LSGIs. earmarked Rs 3907.54 crore for the welfare of people
Scheduled Tribes belonging to Scheduled Tribes. Of this Rs 2995.85
crore was allocated to STDD and Rs 911.69 crore was
Scheduled Tribes in Kerala
allocated to local governments. The year-wise outlay
According to the Census of 2011, the number of
and expenditure for the implementation of schemes
persons belong to the Scheduled Tribe (ST) in Kerala
under the Scheduled Tribe Development Department
is 4,84,839. They constitute 1.45 per cent of the total
and local governments from 2016-17 to 2020-21 are
population of the State. The highest concentration of
in Table 18.12.
persons of the Scheduled Tribes is in Wayanad district
The overall outlay of STDD includes the outlay on
(31.24 per cent), followed by Idukki (11.51 per cent),
schemes implemented by Kerala Institute for Research
Palakkad (10.10 per cent), and Kasaragod (10.08 per
Training and Development studies of Scheduled
cent). There are 1,07,965 tribal families residing in
Castes and Scheduled Tribes (KIRTADS), the Rural
4762 hamlets in Kerala. About 11 per cent (540) of the
Development Department and the High Court. The
tribal habitats are situated within reserve forests and 20
percentage of expenditure by STDD was more than
per cent (948) are in the immediate vicinity of reserve
90 per cent in the first two years. It was 79 per cent
forests.
in 2018-19. In 2018-19, there was a general reduction
There are five Particularly Vulnerable Groups
of 20 per cent in plan allocation in all sectors to meet
(PVTGs) among Scheduled Tribes in the State –
the rehabilitation and restoration needs of the economy
Kattunayakan, Kurumbas, Kadar, Koragas and
after the floods. Expenditure as a proportion of the
Cholanaickan. There are 26,273 people belonging to
revised outlay was, nevertheless more than 90 per cent.
PVTGs in Kerala. There are 6,771 households residing
In 2019-20 as well, expenditure as proportion of the
in 603 settlements. PVTGs constitute 6.17 per cent of
revised outlay, which was 86 per cent, was high.
the total Scheduled Tribe population in the State.
The percentage expenditure by local governments
Allocation and Expenditure of TSP funds from shows an increasing trend in the first three years. In
State Plan, 2016-17 to 2020-21
2019-20, expenditure by the local governments was
As part of the Tribal Sub Plan, all States have to earmark low because of treasury restrictions.
an amount from the State Plan that is equal or more The year-wise outlay and expenditure of the
than proportionate to the Scheduled Tribe population Scheduled Tribe Development Department (excluding
in the State. Ever since the concept was introduced outlays for schemes related to Scheduled Tribes of Kerala
by Government of India, the funds that the State has Institute for Research, Training, and Development
allocated to the TSP has always been more than the Studies of Scheduled Castes and Scheduled Tribes
proportion of the population of the Scheduled Tribes

Table 18.10 Allocation to Tribal Sub-Plan, Kerala, 2016-17 to 2020-21 in Rs crore

Year State Annual Plan TSP Annual Plan in Kerala TSP as % of State Plan
2016-17 24000 682.65 2.84
2017-18 26500 751.08 2.83
2018-19 29150 826.19 2.83
2019-20 30610 866.26 2.83
2020-21 27610 781.36 2.83
Total 137870 3907.54 2.83
Source: Annual Plans, Government of Kerala
 SCHEDULED CASTES AND TRIBES | 263

Table 18.11 Tribal Sub-Plan funds to Scheduled Tribe Development Department and local governments,
Kerala, 2016-17 to 2020-21 in Rs crore
Year TSP funds from TSP funds to STDD % of TSP TSP to local % of TSP to local
State Plan and other Departments to STDD governments governments
2016-17 682.65 526.65 77.15 156.00 22.85
2017-18 751.08 575.08 76.57 176.00 23.43
2018-19 826.19 632.59 76.57 193.600 23.43
2019-20 866.26 663.27 76.57 202.99 23.43
2020-21 781.36 598.26 76.57 183.10 23.43
Total 3907.54 2995.85 76.67 911.69 23.33
Source: Annual Plans, Government of Kerala

Table 18.12 Outlay and Expenditure of Tribal Sub-Plan funds, Kerala, 2016-17 to 2020-21, in Rs crore
and per cent
Year STDD Local Governments
Budget Expenditure Expenditure Budget Expenditure Expenditure
allocation (in %) allocation (in %)
2016-17 526.65 518.05 98.37 156 109.74 70.35
2017-18 575.08 533.75 92.81 176 135.76 77.14
2018-19 632.59 502.23 79.38 193.6 151.29 78.15
2019-20 663.27 428.46 64.60 202.99 110.55 54.46
2020-21 598.26 400.59 66.98 183.10 109.01 59.54
Total 2995.85 2383.08 402.14 911.69 616.35 339.64
Source: Scheduled Tribes Development Department, Government of Kerala

(KIRTADS), Rural Development Department and Tribes. It also implements livelihood schemes for
High Court) between 2016-17 to 2020-21 is in Table resettled tribal families. Implementation of the Forest
18.13. Rights Act (FRA) 2006 is also the mandate of the
Major interventions by the Government and Mission.
achievements in the 13th Plan (2017-18 to 2021-22) (i) Forest Rights Act Implementation
The main thrust of the 13th Plan in respect of the people The Forest Right Act, 2006 covers all districts in the State
of the Scheduled Tribes is in the following spheres. other than Kasaragod and Alappuzha. The Scheduled
1. Land, homesteads, and housing Tribe Development Department is the nodal agency
2. Education: to ensure full access to the best for implementation of this Act. In collaboration with
educational facilities at all-levels: primary, secondary, the Forest Department and Revenue Department, the
and higher education and research. individual rights, community rights and development
3. Skill development: to prepare a new generation rights of the Scheduled Tribes as prescribed under the
for modern employment, enabling them to seek Act are recognised and a Record of Rights has been
employment in Kerala and elsewhere. issued. The major physical achievements under this Act
4. Employment.: to ensure that places reserved for from 2016-17 to 2020-21 are given below.
Scheduled Castes and Tribes are filled. a. Individual Rights
5. Food security. • Individual applications received: 43398
Land, homesteads and housing. The Tribal • Applications passed by Sub-Divisional Level
Resettlement and Development Mission aims to Committee: 28691
provide land to landless tribes, housing, and other • Applications passed by District Level Committee:
infrastructure facilities to the people of the Scheduled 27548
264 | KERALA DEVELOPMENT REPORT 2021

Table 18.13 Outlay and expenditure of Scheduled Tribe Development Department*, 2016-17 to 2020--21
in Rs crore
Year Outlay exclusively for ST Expenditure of ST Percentage of
Department Department expenditure
2016-17 526.65 499.01 94.75
2017-18 575.08 482.39 83.88
2018-19** 497.85 458.58 92.11
2019-20 624.88 391.05 62.58
2020-21 580.98 343.54 59.20
Total 2805.44 2174.57 77.51
Note: * Excludes outlays for schemes related to Scheduled Tribes of following departments — Kerala Institute for
Research, Training, and Development Studies of Scheduled Castes and Scheduled Tribes, Rural Development
Department and High Court.
**Plan cut imposed. Hence the entire TSP allocation was not available for utilisation.
Source: Scheduled Tribes Development Department, Government of Kerala
Table 18.14 Details of land distributed to people of the Scheduled Tribes in Kerala under various schemes,
2016-17 to 2020-21 in number and acre
Name of scheme Number of beneficiaries Extent of land (acre)

Land Purchase 468 261

Record of Rights (FRA) 1534 2045.39
Revenue Patta 99 9.9
Vested Forests 2708 1870.41
Land distribution of Muthanga land struggle 225 225
Alappuzha land acquisition 43 10.75
Land transferred from Irrigation Department 87 17.40
Panthapra at Ernakulam 67 134
Total 5231 4573.85
Source: Scheduled Tribes Development Department, Government of Kerala

• Total Individual Rights Title issued: 26479 From 2016-17 to 2017-18, 4573.85 acres of land
• Total extent of land for which title issued: 35117.51 acre were distributed to 5231 landless tribals under various
b. Community Rights schemes. Most of the beneficiaries received vested forest
• Individual applications received: 1012 land.
• Applications passed by Sub- Divisional Level Housing. A major programme undertaken by the
Committee: 505 State Government is to provide housing to all families
• Applications passed by District Level Committee: belonging to the Scheduled Tribes. A survey conducted
383 by the Scheduled Tribes Development Department in
• Total Individual Rights Title issued: 174 2019-20 estimated that about 16,070 tribal families
c. Development Rights possessing land were houseless and that 7,930 families
• Individual Applications received: 784 were landless. The construction of new houses and
• Claims passed by grama sabha and sent to Forest housing complexes have been undertaken through
Department: 784 the LIFE Mission from 2018-19 onwards. Financial
• Claims passed by Forest Department: 637 assistance is provided from the State Plan and the local
• Claims in which Development Rights are issued: 483 government Plan.
 SCHEDULED CASTES AND TRIBES | 265

In 2016-17, 6,709 houses were sanctioned under Gotrabandhu, Samuhyapadanamuri and incentives and
various schemes of the Scheduled Tribes Development assistance to students. There are 13 nursery schools,
Department; of these 1895 houses have been completed. 10 kindergarten, three Balavadi, one Vikasvadi, three
The remaining 4,814 houses are in various stages of Balavignan Kendrams, seven peripatetic education
completion. centres for Particularly Vulnerable Tribal Groups, 20
In the first phase of the LIFE Mission, 12,049 Model Residential Schools, 22 single teacher schools,
houses were sanctioned; of them, 11,216 have been 106 pre-matric hostels, nine post-matric hostels, 12
constructed. Under Phase II of LIFE Mission, 6,107 training centres, two Vocational Training Centres, and
houses have been sanctioned, out of which 2001 have one Industrial Training Institute functioning under the
been constructed. Scheduled Tribes Development Department. The outlay
24,865 houses have been sanctioned and 14,035 and expenditure for education by the Department from
houses have been constructed under the schemes of 2016-17 to 2020-21 is given in Table 18.16.
Department and LIFE Mission. From 2016-17 to 2020-21, Rs 86,436.00 lakh
Between 2016-17 to 2020-21, Rs 40695.30 lakh were earmarked for the promotion of education of
was earmarked for housing sector and more than 100 students belonging to the Scheduled Tribes. Of this,
per cent expenditure was incurred. 71.95 per cent was spent. The expenditure pattern in
the first three years shows an increasing trend. The
Education. Education was accorded the highest
major programmes and progress made in the field of
emphasis by the Scheduled Tribes Development
education are as follows.
Department. Thirty per cent of the total budget
Pre-matric and post-matric scholarships for ST
provision (plan and non-plan) was set apart for
Students.
education. Major educational programmes of
Scheduled Tribes Development Department include The year-wise details of the number and allocation of
scholarships are given in Table 18.17.
pre-matric and post-matric scholarships, Model
Residential Schools and hostels, peripatetic education Rates of educational assistance enhanced. The
to primitive tribes, tutorial scheme, Gotrasarathi, amount paid by the Government as assistance including

Table 18.15 Outlay and expenditure for housing for families belonging to the people of the Scheduled Tribes,
Kerala, 2016-17 to 2020-21 in Rs lakh
Year Outlay Expenditure % of expenditure
2016-17 5047.3 4629.36 91.72
2017-18 11508 11482.4 99.78
2018-19 12700 13781 108.51
2019-20 5720 7609.01 133.02
2020-21 5720 5494.13 96.05
Total 40695.30 44110.69 108.39
Source: Scheduled Tribes Development Department, Government of Kerala

Table 18.16 Outlay and expenditure (Plan and non-Plan) for education by Scheduled Tribes Development
Department, Kerala, 2016-17 to 2020-21 in Rs lakh
Year Outlay Expenditure % of expenditure
2016-17 15530 12140.4 78.17
2017-18 17090 14333.2 83.87
2018-19 19606 15903.4 81.12
2019-20 17939.5 13364.2 74.50
2020-21 16270.50 6453.28 39.66
Total 86436.00 62194.48 71.95
Source: Scheduled Tribes Development Department, Government of Kerala
266 | KERALA DEVELOPMENT REPORT 2021

Table 18.17 Number of students and expenditure under pre-matric and post-matric scholarships
(Plan and non-Plan) for students belonging to the Scheduled Tribes, Kerala, 2016-17 to 2019-20 in Rs lakh
Year No. of students Plan expenditure Non-Plan expenditure
2016-17 84482 3000.00 2280.00
2017-18 92145 3500.00 2280.00
2018-19 93359 3615.76 1842.26
2019-20 98602 4025.00 1501.00
Source: Scheduled Tribes Development Department, Government of Kerala

lump sum grants, stipends, and scholarships given to Other major achievements in education
Scheduled Tribes, were enhanced in pre-matric, post- 1. 2,216 orphans were provided financial assistance
matric and professional courses in 2019. 2. 1130 students in professional courses were provided
Community Study centres in tribal hamlets laptops and the number of qualifying courses
(Samuhya Padanamuri). A significant initiative was the eligible for getting laptops was increased.
introduction of a new scheme, Samuhya Padanamuri in 3. Assistance provided to 6,000 students under Ayyankali
2017-18. Under the scheme, community study centres Memorial Talent Search development scheme.
equipped with computers with internet, television, 4. Six new post-matric hostels were started in 2018-19
furniture, and reading material were established in and 2019-20 to address the problem of dropping
tribal hamlets throughout the State. An educated out at higher education-levels.
tribal youth from the same community is selected as 5. Special coaching was provided to children belonging
a tutor and social worker. Over the last two years, 250 to Scheduled Tribes for clearing NEET, KEAM and
community study centres were began to function in Civil Service Exams
settlements with Scheduled Tribe concentrations. These 6. Additional model residential schools were sanctioned
centres have helped in enhancing school retention, and in Kasaragod, Attappady and Wayanad and more
improving the quality of education, and also has proved science and commerce batches were sanctioned at
helpful in conducting online classes at the time of the higher secondary-levels.
Covid-19 pandemic. 7. All the Model Residential Schools under the
Engaging Tribal Mentor Teachers in Primary Schools
Department were modernised with facilities such
(Gotrabandhu). Gotrabandhu scheme was started in
as science lab, computer lab, library, language lab
2017-18 to solve learning difficulties faced by tribal and smart class room, modernised kitchen and
children because of language issues. An educated tribal multipurpose playground.
youth with knowledge in the local dialect and Malayalam 8. Majority of the pre-matric hostels were renovated
is selected and trained to function as a mentor-teacher in and provided additional facilities.
primary schools. This has helped in improving school 9. State-level sports and arts festival were conducted
retention and ensuring 100 per cent enrolment of tribal exclusively for tribal children in model residential
children in schools. Under the scheme, 267 tribal mentor schools and hostels.
teachers were appointed, in various primary schools in Livelihood
Wayanad and Palakkad districts. Millet village for Food Security. This is a new initiative
Tribal Girl Child Endowment scheme
intended to rejuvenate agriculture in Attappady. The
(Gotravalsalyanidhi). Gotravalsalyanidhi was started
scheme is jointly implemented by the Agriculture
in 2017-18 girl children of the Scheduled Tribes from Department and Scheduled Tribes Development
birth through various phases of her life. It is a long- Department. Apart from the production of millets,
term endowment scheme that attains maturity after the pulses, oilseeds, vegetables and apiculture, it includes
child attains 18 years of age and has passed the 10th procurement, processing, packing, labelling, and
standard. The insurance amount can be used for higher marketing value- added finished products of millets.
education. This scheme includes cash payouts for Products are marketed under the brand “Attappady
immunisation and school admission. Insurance against Organic.”
death and permanent disabilities is also included. 2088 Attappady Tribal Apparel Park (ATAP). Attappady
girl children were insured under the scheme. Tribal Apparel Park (ATAP) was started in 2017-18 to
 SCHEDULED CASTES AND TRIBES | 267

provide employment to women belong to the Scheduled coverage of Scheduled Tribe workers under
Tribes in Attappady Block in Palakkad District. Under MGNREGS and ensure adequate livelihood to the
the scheme, six months intensive training in making people of Scheduled Tribes, the State Government
apparel was provided to 250 women, with three months enhanced the number of persondays of MGNREGS
on-the-job training in a factory. After the training was for all Scheduled Tribe families in the State from 100
completed, a textile production unit engaging 200 to 200 days. The delay in payment of wages because
women was established in Attappady. The unit stitches of the delayed fund release from the Government of
uniforms for children hostels and model residential India was found as one of the major reasons for the
schools run by the Scheduled Tribes Development tribal families dropping out from the scheme. The
Department. The unit is also engaged in producing Department created a revolving fund scheme for
masks in the wake of the Covid-19 pandemic. the timely payment of wages. It is implemented in
Skilled workforce initiative for construction Attappady, Aralam and Wayanad. A corpus of Rs
industry (Gotrajeevika). Another initiative for 2400 crore has been parked by the Department with
improving livelihood among tribes was the introduction the MGNREGS and the Kudumbashree Missions to
of a new scheme called the “skilled workforce initiative implement the scheme. Under this programme, 68,960
for the construction industry” (Gotrajeevika) in 2017- Scheduled Tribe families gained 100 plus days person
18. The Department conducted an employment- days between 2018 to 2021. Year-wise details are given
generation programme for youth in all districts of in Table 18.18.
the State. Training was given in masonry, carpentry, Table 18.18 Number of tribal families who completed
plumbing, wiring, and brick-making. In the first phase, 100 days job under Mahatma Gandhi National Rural
1,170 beneficiaries were given training and 53 self-help Employment Guarantee Scheme, Kerala. 2018-19 to
groups were formed in the construction sector. The 2020-21 in numbers
beneficiaries of the scheme are now employed in the
construction sector. Year Number of families availed 100 plus
Agriculture income initiative for Scheduled 2018-19 22674
Tribes. In 2019-20 a new scheme, “Agriculture 2019-20 21270
Income Initiative for Scheduled Tribes,” was started 2020-21 25016
to rejuvenate and revamp existing agricultural farms
Total 68960
in tribal areas. There are vast tracts of lands suitable
for agriculture in these farms under the control of Source: Scheduled Tribes Development Department,
Scheduled Tribes Development Department and Government of Kerala
Agriculture Department in tribal areas. These farms Career Guidance Programme, Skill Development
include Aralam Tribal Rehabilitation and Development and Placements. Department conducts career
Mission (ATRDM) area in Kannur, Sugandhagiri, guidance camps and skill training for unemployed
Cheengeri, Priyadarshini and other farms in Wayanad, youth belonging to the Scheduled Tribes. Based on the
Attapady Co-operative farming society in Palakkad feedback from the career guidance programmes and
among others. skill gap analysis, skill training was provided in different
Nutrition-sufficiency in food through agroecology job-oriented technical courses. Trained youth were
in Attapady. For addressing nutrition deficiencies in placed in both Government and private firms, including
Attapady Block, the Scheduled Tribes Development multinational companies abroad. Since 2016-17, 5658
Department initiated a pilot project in 2019-20. This jobless youth have been trained in various fields and
project is being implemented in 1,671 acres in 19 provided employment in reputed firms.
hamlets with a population of 1208 families. 16 field Health. Major health care schemes implemented for
co-ordinators from the Scheduled Tribes were recruited the welfare of Scheduled Tribes include comprehensive
to supervise the projects and to support the farmers. tribal health care, assistance for sickle cell anaemia
The scheme aims to introduce nutrition-sufficiency in patients, jananijanmaraksha and financial assistance
food with the close participation of and management to tribal healers. There are four mid-wife centres, 16
by Scheduled Tribe communities. mobile medical units, 17 Ayurveda dispensaries,
Kerala Tribal Plus and Revolving Fund of one Ayurveda hospital and five outpatient clinics
MGNREGS. In order to ensure the largest possible functioning under the Scheduled Tribe Development
268 | KERALA DEVELOPMENT REPORT 2021

Department. The comprehensive tribal health care Table 18.20 Patients who availed treatment
programme is implemented through hospitals, health under mobile medical clinics of Scheduled Tribes
care institutions, tribal relief fund, health education Development Department, Kerala, 2017-18 to 2020-21
programmes, and de-addiction campaigns in selected in number
tribal hamlets. Jananijanmaraksha scheme addresses
nutritional issues of mother and child. Under this Year Number of patients treated
scheme, Rs 2000 per month is given to the mother 2017-18 24,30,000
from the third month of pregnancy to the month in 2018-19 12,80,000
which the child turns one year old. Financial assistance
2019-20 20,25,878
of Rs 10,000 per year is also given to traditional tribal
healers. Outlay and expenditure under health sector 2020-21 1,03,432
from 2016-17 to 2020-21 is given in Table 18.19. Total 58,39,310
Mobile Medical Clinics. In 2016-17 and 2017-18, Source: Scheduled Tribes Development Department,
the Department started 14 new mobile medical clinics Government of Kerala
(with GPS facility) to provide health services at the patients enhanced from Rs 2000 to Rs 2500 and
door steps of people of the Scheduled Tribes. The 720 patients received assistance.
clinics have doctors, paramedics, and modern medical 3. Rate of assistance under the Jananijanmaraksha
amenities. The mobile clinics are of immense help for scheme was enhanced from Rs 1000 to Rs 2000 and
the tribes living in remote areas. The services provided assistance was given to 44,640 beneficiaries.
by the clinics include the following. 4. Under the food support programme, 88,000 families
1. Antenatal services, injection tetanus, iron and folic belonging to Scheduled Tribes throughout the State
acid tablets, basic laboratory tests and referral for were provided food kits during the monsoon season.
other tests as may be required. 5. 1,22,728 patients received treatment under
2. Identification and referral of complicated comprehensive tribal health programmes.
pregnancies. 6. Community kitchen in Attappady helped enhance
3. Post natal check-up of women and children. the nutrition of the vulnerable population
4. Identification of unimmunised children and their including pregnant and lactating mothers, children,
vaccination for missed doses or administration of adolescents, senior citizens, chronically ill tribes.
Vitamin-A dose. Infrastructure Development
5. Screening of children for identification of
Ambedkar Settlement Development Scheme. In
malnutrition and their counseling and referral
2017-18, the Ambedkar Settlement Development Scheme
(where needed), de-worming.
was started to meet the immediate requirements for
6. Basic ENT and Ophthalmic check ups
infrastructure facilities including water supply, sanitation
Other achievements in health sector facilities, and resettlement of Scheduled Tribe people living
1. 30,500 beneficiaries received Distress Relief fund. in difficult conditions, in order to promote economic
2. Rate of assistance given to sickle cell anaemia activities and meet the basic minimum needs of women

Table 18.19 Outlay and expenditure under health programmes of Scheduled Tribes Development Department,
Kerala, 2016-20 in Rs lakh and per cent
Year Outlay (in lakh Rs) Expenditure (in lakh Rs) Expenditure (in per cent)
2016-17 2650 2600.39 98.13
2017-18 5240 3957.62 75.53
2018-19 4281 4239.36 99.03
2019-20 4373.5 3281.19 75.02
2020-21 4373.50 3520.20 80.49
Total 20918.00 17598.76 84.13
Source: Scheduled Tribes Development Department, Government of Kerala
 SCHEDULED CASTES AND TRIBES | 269

Table 18.21 Outlay and Expenditure under Corpus Fund of Scheduled Tribes Development Department, Kerala,
2016-17 to 2020-21 in Rs lakh
Year Outlay Expenditure Number of beneficiaries
2016-17 5057.69 4754.41 91588
2017-18 5079.00 5022.23 50000
2018-19 5600.00 4054.77 75000
2019-20 5800.00 3353.17 75000
2020-21 4000.00 3700.91 52000
Total 25536.69 20885.49 343588
Source: Scheduled Tribes Development Department, Government of Kerala
and children. 91 settlements were selected for infrastructure Other major achievements
development. Work in 20 settlements is complete and the Socio–economic survey of tribals. The Scheduled
remaining works will be completed soon. Tribes Development Department initiated a socio-
Critical Gap Filling scheme or Corpus Fund under economic survey of tribals in 2018-19. This is one of the
TSP. After allocating TSP funds to various ongoing major initiatives taken by the Department to address a
schemes, a portion of the balance funds is maintained gap in the planning process, that is, availability of data
as a pool to meet the requirement of various critical for formulating plans.
gap-filling programmes under TSP. This is a need-based The socio-economic survey is comprehensive
scheme, which is operated on a project mode. While and includes data on parameters such as population,
funds under this scheme can be used as a critical gap education, healthcare, housing and other basic
filler in any sector of the activity of the Scheduled Tribe amenities, employment and unemployment, income,
Development, priority is given to programmes such agricultural activities, other livelihood activities,
as infrastructure development, self-employment and drinking water facilities, electrification, health, and
skill development, water supply, sanitation, projects land ownership details. The survey information is
for information, education, and communication, based on information from individual households and
vocational training and facilitation centres, micro- settlements. In the settlement-based survey, general
enterprises and income generating activities, and information regarding each settlement, details of
admission of students belonging to Scheduled Tribes in Oorukoottams, Eco-Development Committees, Vana
international institutions. Samrakshana Samithi, and the occupation of tribal
Total electrification of Scheduled Tribe settlements people inside forest areas were collected.
in the State. All the settlements including the remote The survey covered 6881 settlements. The data will
ones were electrified and those settlements where laying be updated every year. As one of the main objectives of
of underground and aerial cables were not possible, the survey is to provide data for micro-level planning,
solar electrification was done. the data are also compiled according to local bodies

Box 18.1
Attappady Alternative

Attappady Alternative is a brief report prepared by the Kerala State Planning Board. The report proposes
short-and medium-term strategies for development and income growth among households in Attappady
Block in Palakkad. Attappady is a tribal-dominated block in Palakkad district and a relatively less-developed
region of the State. Of the total population of Attappady, 43 per cent are people of the Scheduled Tribes.
At the beginning of 2018, the State Planning Board initiated discussion of issues of under-development in
Attappady and a review of existing reports on the subject. In February 2018, after the death of A. Madhu, a resident
of Kadukumanna hamlet in Attappady and victim of a criminal attack, issues of underdevelopment and deprivation
among people of the Scheduled Tribes in the area came back to public attention, and added urgency to the study.
This report (1) summarises the recommendations of diverse previous reports; (2) examines the allocation
270 | KERALA DEVELOPMENT REPORT 2021

to Plan schemes that are applicable to Attappady; (3) summarises certain recent policy announcements of the
Government of Kerala; and (4) draws conclusions from a study of incomes conducted by the State Planning
Board among selected households in the region.
The findings and recommendations of the Report are as follows.
The Plan schemes by Government dealt primarily with welfare measures and direct assistance. These have
played an important role in bringing relief to the people of Attappady, and must continue. Nevertheless,
the welfare approach to development in Attappady needs to be supplemented by an income-enhancement
approach.
1. Finding: The most important correlate of household poverty was the remoteness of the village of residence.
Recommendation: The repair and modernisation of roads in Attappady is an urgent task.
2. Finding: Households with the most cultivable land are the poorest. The data indicate low coverage of
schemes in agriculture and related activities.
Recommendation: The development strategy for agriculture in Attappady should be two-fold, one for the
Attappady Farming Society, which controls 1,093 hectares of farmland, and another for household farming
on homesteads.
The Attappady Farming Society has farms in four places. The details of the extent and crops cultivated
in the farms are shown in the Table 18.22.
Table 18.22 Attappady Farming Society, descriptive features of farm in hectare
Units of Attappady Extent of land Extent of land sown Crops cultivated
Farming Society
Chindakki 283.44 283.44 Coffee, pepper,
Karuvara 141.47 141.47 arecanut, and
Pothupadi 377.8 377.8 cardamom
Varadamala 290 290
As part of the Scheduled Tribe Development Department’s initiative to promote income-bearing
sustainable agriculture, it is currently implementing a scheme titled “Agriculture Income Initiative for
Scheduled Tribes.” The Annual Plan of 2019-20 proposed the promotion of high-value agriculture in farms
in the Aralam Tribal Rehabilitation and Development Mission Area, Kannur, Cheengeri and neighbouring
areas of Wayanad district, and Attappady in Palakkad district.
Modern agriculture should be promoted on homesteads. The Kerala Agricultural University should be
asked to develop a menu of homestead-based farming alternatives for tribal farming families. An urgent
and committed campaign to implement integrated programmes for the development of agriculture, animal
resources, and fisheries must begin. Schemes to enhance incomes through forest and local produce must also
be implemented.
3. Finding: No person covered by the survey worked in the modern industrial or services sectors. Only
two households received remittances from family members in other places.
Recommendation: A strong programme of employment-linked skill development for Attappady must be
designed and implemented so that youth in Attappady get modern sector employment. The report suggests
that our industrial agencies design programmes of industrial promotion, particularly in small industry, for
Attappady. The Government should encourage high-tech, environment- friendly industry in the region.

Challenges and Way Ahead income occupations, to modern means of production,

There continue to be problems of inequality – with access to higher education and research, high quality
respect to education, employment, income and health infrastructure, sustainable means of livelihood, skill
– between people of the Scheduled Tribes and the training, modern agriculture and industrial production.
general population. We also need to address problems of absolute poverty
The path to socio-economic development of Scheduled among some families belonging to the Scheduled Tribes
Tribes lies in the transition from low income jobs to high through family-based micro-interventions.
 PERSONS WITH DISABILITIES | 271

Chapter 19
Some Social Initiatives for Inclusion
Empowering Persons with Disabilities Demographic characteristics of persons with
The 13th Five-Year Plan committed the Government disabilities
of Kerala to invest in social security for the income The survey identified 7,93,937 persons with disabilities
-poor, victims of social discrimination, transgender in Kerala constituting 2.3 per cent of the State’s
persons, persons with disabilities, the economically population, 55.3 per cent were male and 0.015 per
vulnerable, the unemployed, elderly, the hungry, and cent were transgender persons. The highest percentage
the sick. From 2018-19, programmes on empowering of persons with disabilities was from Malappuram
the elderly, persons with disabilities, and transgender District (12.2 per cent) and the lowest was from
persons came under the purview of the Directorate of Wayanad and Idukki districts (2.9 per cent and 3.3 per
Social Justice functioning as a separate Directorate in cent respectively). Age-wise, almost 41 per cent were
the Social Justice Department. in the age group of 35-59 years and 16.5 per cent were
The UN Convention on the Rights of Persons with children. Notably, more than half, almost 52 per cent
Disabilities (UNCRPD) 2013 is the first international of persons with disabilities did not have a disability
legally binding instrument setting minimum standards certificate. Among those who had the disability
for the rights of people with disabilities.18 An estimated certificate, 2.8 per cent had 1 to 40 per cent disability,
15 per cent of the world’s population live with some 36.7 per cent had 40 to 79 per cent disability, and 8.6
form of disability, of whom two to four per cent per cent had 80 to 100 per cent disability. Among all
experience significant difficulties in functioning the persons with disabilities, 51.5 per cent were married
(WHO 2011). The global commitment for the 2030 and 2.5 per cent were either divorced or separated from
Agenda for Sustainable Development recognises the their spouses. Further, 0.8 per cent of persons with
promotion of the rights, perspectives, and well-being disabilities were bed-ridden.
of persons with disabilities in line with the UNCRPD About half the persons with disabilities either did
towards a more sustainable and inclusive world (UN not go to school or dropped out in primary school. In
2019).19 Disability was referenced in five goals related the working-age group, 20-59 years, about 37 per cent
to education, growth and employment, inequality, were employed and the majority were daily wage or
accessibility of human settlements, and as well as data temporary workers. Only 3.7 per cent were in the public
collection and monitoring of Sustainable Development sector (2.9 per cent were permanently employed).
Goals (SDGs). Types of disabilities
Overview of Disability in Kerala The major disability identified among male, female,
In 2015, the Kerala Social Security Mission (KSSM) and transgender persons was locomotor disability
conducted an exclusive survey of persons with (32.89 per cent) and the least prevalent were multiple
disabilities in Kerala. It was one of the first surveys sclerosis (0.06 per cent) and thalassemia (0.07 per
of its kind in India, covering 22 types of disabilities, cent). Multiple disabilities except deaf-blindness
excluding acid attack victims and Parkinson’s disease contributed 17.31 per cent while deaf-blindness was
(included in the Rights of Persons with Disabilities Act, found in 0.11 per cent, mental illness in 12.72 per cent
2016) and including kyphosis and epilepsy as separate and intellectual disability in 8.68 per cent of the total
disabilities.20 number of persons with disabilities.

18
United Nations (2019A): Convention on the Rights of Persons with Disabilities
https://www.un.org/development/desa/disabilities/resources/general-assembly/convention-on-the-rights-of-persons-with-
disabilities-ares61106.html.
19
United Nations (2019B): Sustainable Development Goals
https://www.un.org/sustainabledevelopment/sustainable-development-goals/
20
Based on Census 2011, Kerala had 761,843 persons with disabilities. Among them 171,630 had disability in movement
(22.5 per cent), 115,513 had disability in seeing (15.2 per cent), and 105,366 had disability in hearing (13.80 per cent). There
were 120,457 children with disabilities (15 per cent) and 414,788 persons with disabilities belonging to the age group of 30-59
years (54.4 per cent) (Census India, 2011).
272 | KERALA DEVELOPMENT REPORT 2021

Causes of disability Life Cycle Approach. The scheme Anuyatra, started in

An interesting feature of the survey was that a higher 2017-18, a rights-based life cycle approach in disability
proportion, 57 per cent of persons with disabilities, had management implemented by KSSM, is designed
acquired-disability as against congenital occurrence, as an umbrella programme. It is crafted in line with
and the factors that led to disability included childhood the Rights of Persons with Disabilities Act, 2016 to
illness (12.0 per cent), burns (0.6 per cent), accidents revamp the earlier State Initiatives on Disabilities.
(10.7 per cent), and head injury (2.0 per cent). This includes preventive initiatives, early screening,
Among all persons with disabilities, 42.9 per cent early intervention through District Early Intervention
were born as disabled (disabilities including cerebral Centres (DEICs) and other health and social sector
palsy, intellectual disability, autism spectrum disorder, institutions, education support through special
locomotor disorder, hearing impairment, and multiple anganwadis, buds schools, model child rehabilitation
disability). centres, special schools, inclusive education, vocational
State Initiatives for Persons with Disabilities training, community-based rehabilitation, and assisted
Kerala is one of the leading States in the country when living projects among others. While schools admit
it comes to services offered to persons with disabilities students with disabilities, appropriate mechanisms have
(Newzhook 2019).21 The State Planning Board shares to be put in place to make them inclusive. Teachers,
the view that it is “the responsibility and duty of the in general, need to be sensitised to the needs of such
Government and society to create an environment students. Special education training needs to be made
where the disabled can exercise equal rights, develop more practice-based like nursing training attached to
their talents, and live with dignity.” During the 13th hospitals. Special attention should be given to cognitive
Five-Year Plan period, budget allocations for Persons disability. Diversity in cognitive disability should be
with Disabilities have increased substantially. emphasised. Individual care-plan formulation and
follow-up is another major initiative. This requires
Directorate of Social Justice
convergence of services, resources, and institutions.
Through various organisations under the Social
Every year 5 to 6 lakh children benefit from this scheme
Justice Directorate — National Institute of Speech
(Economic Review 2016 to 2019).
and Hearing (NISH), Kerala Social Security Mission
Spectrum project, a component of Anuyathra,
(KSSM), Kerala State Handicapped Persons Welfare
initiated during the 13th Five-Year Plan is aimed
Corporation (KSHPWC), National Institute of
at early detection of autism, parental empowering
Physical Medicine and Rehabilitation (NIPMR), and
programme, and skill development of the autism-
State Commissionerate of Persons with Disabilities
affected children. Autism centres are established at six
(SCPwD) — the Government has implemented
medical colleges with the service of a physiotherapist,
development programmes for persons with disabilities.
clinical psychologist, occupational therapist, speech
Awareness. Substantial emphasis has been put on therapist, and other specialised doctors. National
generating greater awareness regarding persons with Institute of Physical Medicine and Rehabilitation
disabilities since 2017-18, particularly reducing stigma (NIPMR) serves as a regional autism rehabilitation
and prejudices attached with disability. ‘‘Amma Care’’ and research centre. Another component of Anuyathra
and ‘‘Amma Teacher’’ under State Commissionerate for is the life approach campaign in hearing disability
Persons with Disability (SCPwD) and NISH Interactive management named Kathoram. Cochlear implantation
Disability Awareness Seminars (NIDAS) are part of this and auditory-verbal habilitation of children 0-5 years
effort. The Kerala State Physically Handicapped Persons are done under Sruthitharangam.
Welfare Corporation (KSPHPWC) also implements An innovative project under Anuyathra that was
disability awareness as part of the Subhayathra scheme. initiated in 2017 to increase awareness is M-Power,
In addition, the Directorate of Social Justice (SJD) implemented by the KSSM, under which 23 children
celebrates World Disability Day to promote awareness with intellectually disability were trained in magic at
and understanding about the issue and mobilises the Magic Academy. After three months of training,
support for giving rights to persons with disabilities. the children performed faultlessly in front of Dr Hamid

Newzhook, 2019. https://newzhook.com/story/kerala-government-gets-award-for-empowering-disabled-people-gets-

21

mixed-reviews-from-activists/
 PERSONS WITH DISABILITIES | 273

Ansari, then Vice-President of India, who launched or intellectual disabilities to help them find self-
M-Power in June 2017. They were envisaged as brand employment.
ambassadors of the campaign for spreading awareness As a follow-up to the magic training to children
about persons with disabilities. with intellectual disabilities, employment was provided
Rehabilitation schemes. Athijeevanam is an umbrella to six of them in the Magic Planet to perform magic.
scheme for the development and rehabilitation of In association with KSSM, City Corporation, and
persons with disabilities implemented in the 13th Plan. Kerala Development and Innovation Strategic Council
The Dementia Home provides for the rehabilitation (K-DISC), Magic Planet has set up a Different Arts
of 15 to 23 dementia patients every year. Pratheeksha Centre (DAC) on the campus, a proud initiative
scheme is for the rehabilitation of intellectually of the Government. The centre is functioning as a
disabled persons. A Central scheme, Deendayal platform to engage and empower 100 children with
Disabled Rehabilitation Scheme (DDRS), provided autistic disorders (M-Power incubator) by showcasing
financial assistance to voluntary organisations for the their talents in music, dance, painting, and skills in
rehabilitation of persons with disabilities. However, various musical instruments. Art therapy could play
funds from the Centre have stopped and the State a significant role in bringing positive changes among
Government has stepped in to fund the scheme. In such children.
addition, there are 15 welfare institutions, (including Technological support. The Young Innovators
vocational training centres) under the aegis of the Social Programme (YIP) of 2019, part of K-DISC’s societal
Justice Department (SJD) for the care, protection, and advancement component, has a module called
rehabilitation of disabled and senior citizens (Economic Innovation by Youth with Disabilities (I-YwD) to
Review, 2019). identify and promote youth with different abilities. The
Disability certificate. A disability certificate is programme is organised jointly with the United Nations
necessary to access benefits accorded under the Rights Educational, Scientific, and Cultural Organisation
of Persons with Disabilities Act (2016) in India. As a (UNESCO), Score Foundation, Disability Arts
component of ANUYATHRA, Disability Cards are International, and National Institute of Speech and
distributed through Disability Certification Camps. Hearing (NISH).
Scholarships/educational support. There are seven Financial assistance. Distress relief fund for the
schemes to support students with a disability, from disabled provides financial assistance for medical
school-level to degree or post-graduation or professional treatment, including surgery, to persons who become
or technical training. Some of these are Vidyakiranam, handicapped from accidents, and for any other purpose
Vidyajyothi, Vijayamritham, and Sahachari. As part which is not covered by existing schemes. The Pariraksha
of promoting inclusive education, a new scheme was scheme provides financial assistance for persons with
designed for honouring the National Service Scheme disabilities who are in a crisis or are facing emergencies.
(NSS) and National Cadet Corps (NCC) units of Around 1000 persons with disabilities are benefiting
schools that support persons with disabilities children. from this scheme every year. The scheme Parinayam
Employment and skill training. In the 13th Plan,
provides marriage assistance to girls with physical
attempts have been made to enhance the provision disabilities and the daughters of parents with physical
for self-employment of persons with disabilities. The disabilities. The scheme has been revamped to provide
100 days programme of the Government includes self- assistance to those who marry persons with disabilities
employment loans to 7749 persons registered with the (500 to 800 beneficiaries per year).
Employment Exchanges (of whom 2,708 are women Accessibility/assistive devices. Matru Jyothi is a
beneficiaries). It is a collaborative project of KSHPWC financial assistance scheme for visually impaired
and Labour Department under the Kaivalya scheme mothers. The scheme provides assistive devices to 50
of the latter. Financial assistance is given to lottery to 100 persons with disabilities every year. Barrier-Free
agents with disabilities as a subsidy. There is another Kerala is another project which aims to make Kerala
scheme that gives financial assistance to five blind a disabled-friendly State. Subhayathra and Thanal are
and orthopedically handicapped advocates per year. the other two schemes of KSPHPWC. These schemes
Swasraya is a scheme that provides financial assistance provide free distribution of aids, appliances, and modern
to 100 to 300 single mothers of persons with physical equipment such as high-tech limb, electric wheelchair,
274 | KERALA DEVELOPMENT REPORT 2021

laptop with voice enhanced software, powered bed, and special impetus in the 13th Plan. From an outlay of Rs
other modern equipment for specific needs of people 4.15 crore in 2016-17, it was enhanced to Rs 9 crore in
with disability. 2017-18 and since then, hovered between Rs 12 to 13
Social assistance. Aswasakiranam scheme provides crore up to 2020-21.
an amount of Rs 525 as assistance to caregivers, Community Disability Management and
primarily women, of bedridden persons with physical Rehabilitation Programme (CDMRP). It is an
or intellectual disabilities. extension centre of the Department of Psychology,
Other financial assistance. The KSSM runs two the University of Calicut (supported by the Social
schemes (1) Samaswasam, which provides financial Justice Department). The centre aims to provide
assistance to persons with haemophilia and sickle comprehensive, evidence-based, and community-
cell anaemia and (2) Thalolam, which provided free based services towards prevention, early intervention,
treatment to children below the age of 18 suffering management and rehabilitation of children with
from cerebral palsy, brittle bone disease, haemophilia, developmental disabilities.
thalassemia, sickle cell anaemia, orthopaedic deformities, Institute of Mental Health and Neurosciences
neurodevelopmental disabilities, congenital anomalies, (IMHANS): IMHANS provides comprehensive and
and accident cases (needing surgical intervention). An multidisciplinary mental health care to children with
average of 13,000 to 20,000 children benefit from this developmental disabilities and psychiatric disorders.
scheme every year. It has four adult psychiatry units. They also provide
Institutions and programmes for persons with psychosocial support for Tribal Population in Wayanad
disability District.
The burden of disability can be minimised through
Initiatives of Other Departments/Institutions
proper interventions. The following are the institutions
under SJD providing interventions to persons with Department of Health and Family Welfare
disabilities. Screening. Through Salabham (comprehensive
National Institute of Speech and Hearing (NISH). newborn screening programme), all babies born in
NISH is a premier institute in the area of disability Government hospitals are subjected to comprehensive
for disability studies and rehabilitation sciences. It also screening. During the 13th Plan, this facility was
provides an excellent environment for the pursuit of extended to all Government hospitals. Some private
higher studies for persons with disabilities. hospitals are also doing the screening.
National Institute of Physical Medicine and Rehabilitation programmes. A fourth limb fitting
Rehabilitation (NIPMR). NIPMR is dedicated to the centre is being set up at the district hospital, Palakkad,
early identification, intervention, and rehabilitation of adding to the three existing facilities at General Hospital,
children and adults with multiple disabilities, cerebral Ernakulam, district hospitals at Kollam and Kannur.
palsy, stroke, and other associated disorders. In the 13th There are 11 Physical Medicine and Rehabilitation
Plan, it has been completely revamped and has emerged Units set up in major hospitals in 11 districts. For the
as a Centre of Excellence in addressing disabilities. rehabilitation of persons with locomotor disability, a
Kerala State Physically Handicapped Persons Welfare Society for the Locomotor Disabled (together
Welfare Corporation (KSPHPWC). Established in with SJD) was formed earlier in 2013-14. In the 13th
1979, its activities have grown over the years with a Plan, assistance per beneficiary has been significantly

Table 19.1 Beneficiaries of major institutes related to disabilities under the Social Justice Department,
Government of Kerala in number
Name of the Institution 2015-16 2016-17 2017-18 2018-19 2019-20 2020-21
NISH 7,298 8,246 7,129 30,212 18,238 *
NIPMR * * 16,186 25,943 28,113 *
CDMRP * 10,038 27,437 31,699 34,734 6723
Note: Economic Review (2019, 2018, 2017 and 2016) for more details
*Data unavailable
Source: Unpublished data collected from NIPMR, Annual Reports of NISH and CDMRP, and Department of Social Justice
 PERSONS WITH DISABILITIES | 275

increased to Rs 50,000 per person. A new initiative Department of Higher Education. CeDS (Centre
during this Plan is Day Care Centres for the mentally ill of Excellence for Disability Studies) with a focus on
in remission under the Comprehensive Mental Health innovations in rehabilitation technologies is established
Scheme launched in 2017-18. The State Government as a part of the LBS Centre for Science and Technology,
has started 26 daycare homes and 506 cured mentally Thiruvananthapuram.
ill patients are being provided daycare. The Additional Skill Acquisition Programme
Child Development Centre. Child Development (ASAP) offers vocational skills training to facilitate the
Centre is an autonomous centre in early child care and employment of disabled students at NISH, who failed
education, adolescent care and education, premarital to clear eligibility of the computers and fine arts course
counselling, women’s welfare, and other related fields offered by NISH.
to reduce childhood disability through novel scientific Inter-University Centre for Disability Studies
initiatives and create a generation of responsive parents. (MG University) is working to develop higher-level
professionals in the field of disability studies and to
Institute for Cognitive and Communicative develop a holistic approach for the total rehabilitation
Disorders and Neuro Sciences (ICCONS). of the disabled.
ICCONS provides intervention and assessment for
Department of Agriculture
various disorders such as autism, learning disability,
Kerala Agricultural University, Vellayani has started
developmental language disorders, mental retardation,
a programme with the support of KSSM in 2018
cerebral palsy, hearing impairment, adult stroke and
to provide horticulture therapy to persons with
related problems, parkinson’s disease, dementia,
disabilities, which uses plants and plant-related
aphasia, and other genetic and metabolic disorders
activities for physical, mental, and social well-being.
affecting speech, language, and cognitive functions in
In the year 2019-20, two programmes were conducted
children and adults. It also provides special education
by the Department of Community Science, College of
schools for children with cognitive language disorders.
Agriculture funded by KSSM and the Department of
Sree Chitra Tirunal Institute for Medical Sciences Agriculture.
and Technology (SCTIMST). It provides treatment Local Self-Government Department (LSGD)
for Parkinson’s disease, neurological disorders, and
Scholarship. Using the Tribal Sub Plan (TSP) funds
movement disorders. The Comprehensive Care Centre
for the disabled, LSGD is providing scholarships
set up in collaboration with NISH in 2016 aims at a life
to children with disabilities through Integrated
cycle-approach for neurodevelopmental disorders such
Child Development Scheme, under the mandatorily
as autism, learning disability, cerebral palsy, intellectual
required fund (five per cent for children, disabled, and
disability and global development delay. Under the
transgenders).
second phase of the project in 2018, a sensory park has
been set up at NISH. Employment. Mahatma Gandhi National Rural
Employment Guarantee Act 2005. Even though the
Department of General Education, Samagra Shiksha
scheme is not for persons with disabilities, as per the
Abhiyan. The Individualised Education Programme
KSSM Disability Survey (2015), more than 66000
(IEP) of the Department is for slow learners, modelled persons with disabilities are beneficiaries of this scheme.
on resource room training in normal schools. If a child
with a disability has difficulty coping in regular schools, Pension. Either intellectually disabled or physically
then they are catered through special schools. disabled elderly destitute with more than 40 per cent
From the year 2018-19, Samagra Shiksha emphasises disability are getting pension through Indira Gandhi
improving the quality of education for all students, National Disability Pension Scheme.
including children with special needs, providing Kudumbashree Mission. Kudumbashree initiated
support for various student-oriented activities. a disability programme namely “BUDS” schools to
Special School Kalolsavam for children with special overcome the labelling and stigmatisation towards
needs is also held by the Education Department. children with intellectually disabilities and to provide
State Institute for the Mentally Challenged (SIMC) special schools for various categories of children.
is an autonomous society registered under the charitable There are 138 BUDS schools in the State. BUDS
society’s registration act 1995, that provides training to Rehabilitation Centres (BRCs) were started in rural
persons with mental illness. areas to provide training, daycare, and health care to
276 | KERALA DEVELOPMENT REPORT 2021

persons with disabilities above 18 years with intellectual disaster-prone area in order to minimise the risks of
disability, cerebral palsy, autism, and multiple disability. rescuing persons with disabilities.
There are 151 BRCs in Kerala. 3. There shall be measures taken up to set up disabled-
Department of Women and Child Development friendly temporary shelters and buildings at the
local government-level with the required facility
Education. For providing appropriate training
for information and communication, health, and
and remedial therapy to pre-school children with
education that are accessible for persons with
disabilities, one Anganwadi in every Integrated Child
Development Services project is designated as a special disabilities.
Anganwadi. At present, the project is implemented in 4. There is a necessity for introducing disability-
Kozhikode District. inclusive climate resilience programmes and DRR
strategies as a part of the implementation of the
Department of Labour and Skills
SDGs. The Sendai Framework for Disaster Risk
Employment and Skill Development. In 2016, Reduction 2015-2030 may be adopted for the same
Kaivalya was introduced as a comprehensive scheme (UN, 2020)
for achieving the goals of social inclusion and equality
of opportunity for all citizens with disabilities. Special Recognitions Received from 2016-2020
employment exchanges for disabled persons have been 1. On the occasion of the International Day of Persons
established at Thiruvananthapuram, Neyyattinkara, with Disabilities on December 3, 2019, the Ministry
Kollam, Kottayam, Ernakulam, and Kozhikode. of Social Justice and Empowerment awarded Kerala
the best State in promoting empowerment of
Department of Sports
persons with disabilities.
Scholarship. Kerala State Sports Council had 2. In 2018-19, the Kerala State Handicapped Persons
implemented Dr APJ Abdul Kalam Scholarship for Welfare Corporation received the award for best
encouraging eminent sports players in the State. The Channelising Agency of National Handicapped
scholarship was started in 2015-16 and 10 sports Finance and Development Corporation and also
persons were selected and given scholarship. Six sports incentive for higher turnover.
persons were given scholarship under this scheme in 3. In the World Hearing Forum of the World Health
2019-20 (Economic Review, 2019). Organisation, Kerala also got selected to be a
The pandemic Covid-19 scenario. On February 10, participant. The ENT Department of the Kozhikode
2020, Kerala State Disaster Management Authority Medical College has received membership in the
(KSDMA) in collaboration with NISH produced an World Hearing Forum.
Indian Sign Language (ISL) awareness video about Empowering Persons with Disabilities: A Vision for
Covid-19 and published it on social media. It was Kerala
the first awareness video in ISL about the pandemic. Over the past decades, Kerala has been a pioneer in
Arrangements to repair batteries of assistive devices of spearheading projects for persons with disabilities.
persons with disabilities were made by KSDMA. Food However, there are still gaps to be filled. There are no
was also distributed to persons with disabilities in need. special services, schemes, financial assistance, or pension
In addition, press conferences of the Chief Minister, for persons with disabilities with dwarfism, Parkinson’s
Shri Pinarayi Vijayan, about Covid-19 were interpreted disease, muscular dystrophy, and multiple sclerosis.
in ISL with the help of NISH. Programmes that benefit these patients should also be
Suggestions for Disaster Risk Reduction (DRR). designed and implemented in line with the Rights of
1. Training regarding search, rescue, and evacuation Persons with Disabilities Act, 2016. There are major
of persons with disabilities should be provided to gaps with respect to accessibility, in terms of necessary
all rescue teams (fire force, police, volunteer groups, infrastructure support for persons with disabilities, and
and others identified by KSDMA). Evacuation plans lack of registry. There is neither an integrated system
for persons with disabilities must be framed and that combines the activities of different departments
incorporated into Disaster Risk Reduction (DRR) nor enough records of persons with disabilities availing
strategies and should include the supply of necessary services from the State. In addition, what comes out
equipment (Post-Disaster Needs Assessment,2019). very clearly, is that multiple departments are providing
2. There is a need for tracking of persons with the same type of service. The larger goal at achieving
disabilities using GIS in each local government and independent living for persons with disabilities within
 PERSONS WITH DISABILITIES | 277

the shortest possible time should be the target, within The early intervention network in the State starting
which all major gaps would be addressed, as envisaged from early screening facility at delivery hospitals
in the Rights of Persons with Disabilities Act, 2016. up to the apex centres in early intervention needs to
As an initial move, the State Government may start be strengthened. Establishing, strengthening, and
with the following activities: institutionalising an organised network of systems and
Integrated multi-departmental initiative institutions for prevention, early intervention, disability
The need for a cell that can coordinate various activities management, vocational training, skill development and
for persons with disabilities in the departments such as social rehabilitation including parental empowerment
Social Justice, Health, Education, Labour, and LSGD. shall be the strategy. A convergence of services and
This cell shall also oversee the implementation of bringing local governments to the forefront of disability
disability rights. management shall be the approach.
State disability registry Community-Based Rehabilitation (CBR)
The existing disability census done by KSSM in 2015 The geographical mapping of persons with disability
can be converted to a digital registry of the State. This should be done in order to implement successful
can make disability data live and dynamic. This live data community-based rehabilitation at the local
shall be helpful in introducing an online Individual Care government-level. Currently, Kerala does not have a
Plan (ICP) which can be used for implementing a life strategy to reach out to all persons with disability.
cycle approach for persons with disabilities. In addition, There is a huge lacuna of rehabilitation professionals
there is a need for an online registry that contains the and clinicians in the country to cater to the multiple
details of the children in all gynaecology and obstetrics needs of persons with disabilities. There is an urgent need
department and the paediatric department of every for improving the quality of healthcare clinicians and
hospital where radiological screening is positive for rehabilitation professionals working with persons with
congenital anomaly. Doctors from the Government and disabilities by ensuring adequate numbers of persons
private sectors should be trained on recent developments with disabilities-professional ratio and updating the
and research on the identification of birth deficits and knowledge by the rehabilitation professionals/clinicians
necessary steps to be taken for a healthy delivery. through continuous professional development.
A possible suggestion is to introduce the Unique Research should be encouraged to develop
Disability ID in collaboration with a bank so that diagnostic and screening tests for various disabilities.
the persons with disabilities can use it as an ATM Centres such as NISH and NIPMR should collaborate
card, in the model of a universal card for persons with to develop model intervention programmes through
disabilities. research and should develop training modules for
teachers and parents in video, audio, and text format.
Early detection
In addition, there is a need for developing a Physical
Early screening, detection, intervention, and allied
Education Department for training and equipping the
services for rehabilitation that include vocational
persons with disabilities with the vision of participation
training, skill development, and parental empowerment
in Paralympics.
are accepted as the most effective method in disability
management, especially among children. Assisted living
Kerala is a State in which immunisation programmes Assisted living is an area that is being debated on
have been successfully implemented in the past decades. a number of platforms. “What happens after me?”
According to Joy et al. (2019), among the children aged is the eternal worry among the parents of persons
12–23 months, 89 per cent were fully immunised, 10 with disabilities. Assisted living is a shift from
per cent were partially immunised, and one per cent institutionalisation to a concept of independent living
remain unimmunised in Kerala.22 The programme in the community, which is a reflection of new ideas
can be extended to monitor development delays, if that are emerging. There is a need for conducting
any, using simple developmental screening tools such future research in this area by visiting the structure
as the Development of Observation Card (DOC) or of retirement homes in Kerala and by focusing on
Trivandrum Developmental Screening Chart (TDSC). improved infrastructure, assisted living technologies,

Joy,TM, George,S, Paul N, Renjin, BA, Rakesh PS, and Sreedevi, A (2019): ‘‘Assessment of Vaccine Coverage and
22

Associated Factors among Children in Urban Agglomerations of Kochi, Kerala, India’’, Journal of Family Medicine and
Primary Care, 8(1), 91-96.
278 | KERALA DEVELOPMENT REPORT 2021

Thiruvanathapuram 13.10%
433,155
Kollam 13.30%
351,818
Pathanamthitta 17.90%
214,540
Alapuzha 15.20%
324,410
Kottayam 15.90%
313,637
Idukki 11.70%
129,443
Ernakulam 13.80%
453,484
Thrissur 13.80%
431,558
Palakkad 12%
336,646
Malapuram 8.40%
345,022
Kozhikode 11.80%
363,839
Wayanad 9.60%
78,760
Kannur 12.80%
321,999
Kasargod 9.90%
129,568

Figure 19.1 Number of elderly in a district and percentage of elderly to the total district population, Kerala
Source: Census, 2011

skill development, and employment opportunities. The elderly must not merely live longer, but must be
The report of the expert committee (constituted by the able to lead secure, dignified and productive lives.
State Planning Board jointly with the Education and The Maintenance and Welfare of Parents and Senior
Social Justice Department) on assisted living with a Citizens Act, 2007 was enacted in December 2007, to
model programme proposed should be reviewed by the ensure need-based maintenance for parents and senior
Government. citizens and their welfare. Kerala has so far completed
Accessibility all the consequential steps under the Act, and it is being
There is a need for promoting disabled-friendly public implemented in the State. Moreover, a strong social
infrastructure, including living spaces, transport, protection system is essential for the elderly population,
information, and communication to ensure the if the State (and India), are to meet the 2030 agenda set
participation of persons with disabilities in education, by the Sustainable Development Goals (SDGs).
employment, and social life. There should be guaranteed Demographic Profile of the State
access to bank loans and micro-finance for start-up According to the Census of 2011, there are 42 lakh
businesses at interest rates that take into account the people who are above 60 years of age in Kerala. Of
additional costs related to disabilities (UN, 2020). these, 22 lakhs were females and 20 lakhs were males.
Empowering the Elderly Figure 19.1 shows the distribution of 60+ at the district-
The World Health Organisation has declared 2020- level in numbers and as a percentage of the district
2030  The Decade of Healthy Ageing. The issues that population. By 2025, the proportion of the population
it has raised are particularly relevant to Kerala where above 60 is projected to be 23 per cent.
high-levels of social development have resulted in Pathanamthitta District has the highest proportion
low fertility rates, declining mortality, and increasing of the elderly, followed by Kottayam and Alappuzha.
longevity. The proportion of elderly in the State has Twenty six per cent of elderly men and eight per cent
increased from 10.5 per cent in 2001 to 12.6 per of elderly women participate in the labour market.24
cent in 2011 and is projected to rise to 23 per cent According to the same report, workforce participation
by 2025, closer to current rates in OECD countries.23 declines with age, but amongst those above 80 years
23
Census of India 2011, Population Projections for India and States 2011 – 2036, Report of the Technical Group on Population
Projections, November 2019, National Commission on Population, Ministry Of Health and Family Welfare.
24
UNFPA (2013).
 ELDERLY | 279

of age, 8 per cent of men and 3 per cent of women resources. While the percentage that contributes
continue to participate in the labour market. The financially is relatively low, those who contribute to
report also finds that work participation rate is much various household chores is significant (Table 19.1),
higher among the poor and less educated elderly and and these remain invisible. In 2020, a quick survey
among elderly belonging to Scheduled Castes and of working mothers of anganwadi children in two
Scheduled Tribes than those belonging to the educated anganwadi centres each in Southern, Central and
and wealthier groups. A large majority of the elderly North Kerala, on how they managed work and child
workers are self-employed, a smaller number are care before and after Covid-19, showed that all the
engaged as casual labourers, and a small share work in mothers who were working (constituting roughly half
salaried positions. of the number of AW children) had parents or in-laws
The ratio of the dependent population to that of the staying with them or near them.27 The contribution of
working age population is defined as the dependency the elderly in terms of household help and care work
ratio. It is an important indicator of the economic should be strongly recognised.
burden carried by each worker in the State (a measure Ageing and its Implications for the State
of the pressure on the working population and normally Population ageing reflects the achievements of the State in
expressed as a percentage). In Kerala, the dependency improving the health status of people. These demographic
ratio was the highest in the country at 19.6 (18.6 for men, changes, however, pose some challenges for the State, its
and 20.6 for women) (Elderly in India 2016, Ministry of families and the elderly, as the number of elderly is on the
Statistics and Programme Implementation, GOI). rise, especially owing to the good health services in the
There are also important gender issues among the State. This requires responsive and pre-emptive policies
elderly. While 88 per cent of men above 60 are literate, and measures to prepare the State for meeting the SDG
only 72 per cent of women are so. A larger percentage 2030 agenda for social protection to support elders who
of women are fully dependent on others (70 per cent are disadvantaged to live a life of dignity.
in rural and 64 per cent in urban) than men (43 per The implications of a rapidly ageing population will
cent in rural and 37 per cent in urban).25 Among need to be met both at the macro (national)-level and
senior citizens, while only 8.8 per cent of the men are at micro (household)-level. At the macro-level, it will
widowers, about 57 per cent of the women are widows. increase the costs of an ageing population; while at
Women outlive men by an average of 6 years, thereby the same time decrease the revenue through lower tax
the problems confronting them are exacerbated. base and tax revenue. This shift will necessitate regular
A 2020 survey conducted by the Government of transfers to the elderly, with a higher proportion of
Kerala, where about 40.23 lakhs of elders responded, taxes and social insurance contributions needed to pay
provides a most recent picture of the elderly in the social pensions and healthcare, in the highly budget-
State.26 Amongst the elderly respondents, 89 per cent constrained context. At the micro-level, families
self-reported their health status to be satisfactory while have been, and to a great extent, continue to be, the
only 11 per cent considered it to be unsatisfactory. primary source of care for the elderly. However, with
As many as 83 per cent of the respondents reported migration, increased mobility, economic development
that they have medication for at least two weeks, and and changing family patterns, the responsibility of
95 per cent felt they were getting a balanced diet. A elderly care is becoming a challenge. While the better
similar number (95 per cent) did not need to rely on off among the elderly can pay for market services, the
community kitchens for their diet. Most importantly, poor are deeply vulnerable, and increasingly turn to the
99 per cent of the respondents were aware of preventive State for succour.
measures for Covid-19. Health-related issues
While only a small number of elderly participate The morbidity rate of Kerala’s elderly is high at an
in the labour market, a much larger number make estimated 65 per cent (NSSO survey 2015), with
meaningful and significant contributions to household increasing health expenditures. A 2017 study found

25
http://mospi.nic.in/sites/default/files/publication_reports/ElderlyinIndia_2016.pdf
26
Survey on Health Status of the Senior Citizens in Kerala conducted by Women and Development Department, Government
of Kerala, April 2020.
27
Findings of an unpublished quick study done by Social Services Division in the Planning Board in May 2020. Information
on Anaganwdies supplied by Department of Women and Children, Governmentof Kerala.
280 | KERALA DEVELOPMENT REPORT 2021

Table 19.2 Age-wise participation of elderly in various activities, Kerala in per cent
Activities  Age Group Total
60-69 70-79 80+
Care of Grandchildren 75.9 73.9 54.4 72.7
Cooking/cleaning 70 47.5 23.5 57.9
Shopping for Household 67.2 38.2 17.1 52.9
Payment of Bills 53.7 31.2 11.2 42.1
Advice to Children 89.6 82.4 61.8 84.1
Settling Disputes 91.2 81.8 56.1 84.2
Source: The Status of Elderly in Kerala 2011 from the survey ‘Building a Knowledge Base on Population Ageing in India
(BKPAI)’ by The United Nations Population Fund (UNFPA), December 2013
Table 19.3 Percentage distribution of elderly by annual personal income by sex, Kerala 2011
Income (in Rupees) Men Women Total
No income 25.3 50 39.6
≤12, 000 27.2 35.7 32.2
12,001–24,000 6.6 2.3 4.1
24,001–50,000 11.2 4.4 7.3
50,001 + 27.1 6.6 15.2
Don’t know/NA 2.6 1 1.7
Total 100 100 100
Mean 45,815 10,871 25,404
Number of Elderly 567 798 1,365
Source: The Status of Elderly in Kerala 2011 from the survey ‘‘Building a Knowledge Base on Population Ageing in India
(BKPAI)’’ by The United Nations Population Fund (UNFAP), December 2013
that 35.5 per cent of the elderly participants in the they are likely to be more under the authority of their
study had acute health problems for the previous one relatives or care-givers, and are often isolated with
month.28 Further, 81 per cent reported having at least restricted mobility. This leads to other issues including
one chronic problem ailment, and 72 per cent had depression and amnesia.
more than one chronic problem. According to the Similarly, Kerala is reported to have a high prevalence
self-reported economic status, 42.2 per cent said they rate of late-life depression with some studies estimating
have a monthly income below Rs 1000. Of them 69 it could be as high as 55 per cent.29 This has important
per cent said their income was  inadequate to meet public health implications for Kerala that need to be
their expenses, and 50 per cent depended on family addressed at the primary basic health care facility.
members for their expenses. The main social problems Poverty and economic insecurity
identified were abuse by family members (32 per cent), Poverty and economic insecurity are issues for a sizeable
and quarrels with family members and neighbours (27 group of the elderly. The high dependency ratio in the
per cent). State combined with the low participation of elderly in
The projected prevalence of dementia among the labour markets results in low economic security for
elderly aged 65 years and above in Kerala was 1.5 elderly men, and more particularly for elderly women in
lakh in 2011, according to the latest Dementia-India the State (Table 19.3). They depend on family sources,
Report of Alzheimer's and Related Disorders Society and this affects the quality of health care received. The
of India (ARDSI). More women suffer from dementia better-off elderly appears to have more faith in private
than men, and they are at a greater disadvantage since hospitals and spend out-of-pocket on health expenses
28
2017. A Study on Health, Social and Economic Problems of Elderly Population in an Urban Setting Kerala. Dr Mini S S,
Dr Anuja U, Journal of Medical Science And clinical Research. https://dx.doi.org/10.18535/jmscr/v5i5.69
29
https://www.ncbi.nlm.nih.gov/pmc/articles/PMC4623644/ (2015)
 ELDERLY | 281

for effective treatment; those belonging to poor and Achievements — What has the Government Done
marginalised groups prefer Government hospitals. So Far?
A large number of the elderly depend on social The Government has recognised this responsibility and
security pensions provided by the Government. has developed various programmes to help the elderly
Overall well-being poor. The Government has a two-pronged strategy.
Kerala has been praised for its high sex ratio and the While the programmes help to address the vulnerabilities
longer lives that women live, but this also means that that the elderly population faces, they also ensure that
women predominate among the elderly. The sex ratio the elderly live better and healthier lives.
among the elderly (60+) was 1382, with the highest sex The programmes and schemes for senior citizens
ratio in the age group 80 years and above at 1656 elderly implemented through the Social Justice Department
women for 1000 elderly men (UNFPA et al. 2013). support old age homes, day care centres, and mobile
Women in the latter group need special attention. medicare units. The Department also acts as the
Issues for the elderly are the neglect, abuse, and nodal agency for the effective implementation of the
disrespect they face, despite legislation to protect them. Maintenance and Welfare of Parents and Senior Citizens
The Government and NGOs provide old age homes Act, 2007 in the State. Accordingly, maintenance
for the elderly in Kerala. The State has the largest tribunals are functioning for checking elder abuse
number of old age homes (around 600) in India but and redressing the petitions of senior citizens in all
their standards of care are highly uneven. Most of them the districts with RDOs as the Presiding Officers and
are managed on custodial lines and take care of only the District Collectors as Appellate Tribunal authorities.
food and lodging of residents. It is important that such More recently many of the responsibilities are shared
homes be modernised and made resident-friendly.30 by local governments.
The availability of reliable care workers is another Social pensions and transfers to provide security to
significant concern. Currently, there are multiple the elders
service providers who supply care workers in a market, Pensions for elderly are the most widespread form of
which is unregulated or without any oversight. Lack social assistance in the world, and a key element of the
of sufficient data on the elderly is another constraint Sustainable Development Goal 1.3. Today, the State
for policy makers. When it comes to planning, data pays non-contributory pensions to approximately 48
is available on people belonging to the elderly age lakh beneficiaries under five categories, this has almost
group; however, it is scattered and panchayats do not doubled from 27.6 lakh beneficiaries in 2014-2015.32
take this data into consideration while designing their The State offers the following five types of welfare
programmes.31 pensions to eligible persons above the age of 60 and having

2018-19 28,029

2017- 18 27,272

2016-17 19,149

2015-16 17,499

Figure 19.2 Residents in old age homes in Kerala, 2015-16 to 2018-19 in number

30
Report of the Working Group on Social Protection and Welfare, Thirteenth Five-Year Plan (2017-2022), Kerala State
Planning Board Government of Kerala.
31
Shri Vijayanand, Former Chief Secretary, Government of Kerala, at a Kudambashree hosted conference.
32
https://saiindia.gov.in/sites/default/files/audit_report_files/Kerala%20_Report%20_6%20_2016%20_PA%20_of%20
282 | KERALA DEVELOPMENT REPORT 2021

a family annual income of less than ten thousand rupees. of persons in old age homes (under Social Justice
1. Agricultural pension (Rs 1200 per month) to a Department and Registered Welfare Institutions) has
person who is a member of the Kerala Agricultural increased significantly between 2015 and 2019 (Figure
Workers Welfare Fund. 19. 2).
2. Old age pension: The Indira Gandhi national old- Health care
age pension scheme (Rs 1500 per month) to a Snehitha, a “calling bell” scheme is a recent innovation.
destitute person. Around 25,000 elderly neighbourhood groups have
3. Indira Gandhi national disability pension scheme been formed under the aegis of Kudumbashree for
for “mentally challenged” (Rs 1200 per month), elderly living alone.
Indira Gandhi national disability pension scheme Kerala implemented Prime Minister’s Jan Arogya
where physical disability is more than 80 per cent Yojana/Karunya Arogya Suraksha Padhathi (KASP)
(Rs 1300 per month). from April 2019 onwards. Within a span of only five
4. Pension for unmarried women above 50 years (Rs months, 100 per cent of the families were enrolled, and
1200 per month) and at least one member of each family had received the
5. Indira Gandhi national widow pension scheme (Rs KASP card. As of now, more than 55 lakh e-cards have
1200 per month).33 been generated. After the first round of enrolment, the
As a part of decentralisation, the implementation of team focused on left out families to achieve 100 per
these pensions has been transferred from the Revenue cent family enrolment (Table 19.4). These enrolment
Department to local governments, which are entrusted drives include tribals, destitutes, and residents of old
with the task of receiving the application, processing, age homes and orphanages. The National Health
granting and distributing the pension. Authority has highlighted Kerala as one of the States
Other transfers under some specific programmes are with best practices and innovations.
described below. Table 19.4 Details of Karunya Arogya Suraksha
1. Aswasakiranam. This scheme provides financial Padhathi beneficiaries, Kerala
support to bedridden and intellectually disabled
patients, their families and primary caregivers. A Number of PM-JAY eligible 2,187,933
monthly assistance of Rs 525 is being provided under families as per SECC/RSBY data
the scheme to caregivers of all bedridden patients Number of PM-JAY additional 19,40,393
who need a full-time care. At present, about 1,30,000 families covered by the State
beneficiaries are receiving assistance of which about Number of candidates above 50 14,35.897
42,000 are reported to be elderly, many being women. Note: State Health Agency (SHA) does not capture the
2. Snehapoorvam. This is a new initiative that provides data of people above 60. The specific data is available on
financial support to orphans or those who have lost one request only with National Health Authority, Delhi.
parent and are living with the support of their family. Source: https://pmjay.gov.in/kerala_profile, and the State
Elderly grandparents, who are often the caregivers, Health Agency (SHA), Kerala
receive financial assistance for the education of such Vayomithram programme was initiated through
children, ranging from Rs 300 per month (for primary Kerala Social Security Mission in six municipal
school goers) to Rs 1000 per month (for undergraduate corporations and 85 municipalities and one block of
students). The burden of childcare frequently falls all the 14 Districts. In 2019-20, 2,69,416 persons
on old women and hence this scheme has special benefitted. A help desk provides general support and
significance for them.34 information. This project is being extended to all block
Welfare homes for the elderly panchayats in the State. A new initiative Ayurmithram
In Kerala, 16 government old age homes are functioning under this programme aims to provide ayurvedic care
under the Social Justice Department, of which 11 homes to the elderly.
have been transferred to local governments. Under the Vayoamrutham is implemented through Social
Orphanages and Other Charitable Homes Act, 1960, Justice Department with the support of Department
620 old age homes are registered in Kerala. The number of Indian System of Medicine in government old age
33
Social%20_Security%20_Pension%20_Schemes.pdf
These numbers were obtained from the Government webpage.
34
Data is not captured segregated by age.
 ELDERLY | 283

Table 19.5 District-wise details of palliative care units in Kerala

District Government run Community based No of beneficiaries above 60
palliative care clinics palliative care clinics Age
Thiruvananthapuram 123 13 14000
Kollam 103 21 13119
Pathanamthitta NA NA NA
Kottayam 109 20 8743
Alappuzha 97 10 10340
Idukki 72 6 6870
Ernakulam 154 35 10000
Palakkad 125 10 7356
Thrissur 134 32 12000
Malappuram 138 92 11652
Kozhikode 81 65 7500
Wayanad 38 18 2990
Kannur 94 50 6510
Kasaragod 54 15 4050
Total 1322 387 115130
Source: Information obtained on phone from each centre

homes. In 2018-19, 786 residents of Government old care and entertainment. The pilot project started in
age homes were provided with ayurveda treatment. Kannur district by developing a Government old age
Mandahasam, started in 2018-19, aims to give free home as a model second innings home.
sets of teeth for senior citizens under Below Poverty Kerala Police Janamaithri Suraksha: Initiated in
Line category. The Social Justice Department has a list 2008 with 20 select police stations, Janamaithri has
of dental colleges and dental treatment centres from now expanded to 248 stations across the 14 Districts. It
where the beneficiaries could avail treatment. The is a unique concept of community policing whereby the
beneficiaries are entitled for a financial assistance of up State joins hands with the citizens in crime prevention.
to Rs 5000. The number of beneficiaries covered under One component of this scheme is the protection of
this scheme in 2018-2019 was 1301. senior citizens. The police help to monitor senior
Well-being of the elderly citizens by interacting with them on the phone, visiting
Sayamprabha, another initiative by the Social Justice them regularly, organising field visits and advising
Department in collaboration with local governments, them on their personal problems. Recently, they have
provides daycare facilities and other welfare activities also initiated Prashanthi a helpline exclusively for old
which include yoga classes, and meditation classes. age citizens. The main aim of the project is to provide
There are 82 daycare centres running as Sayamprabha psychological assistance, the purchase of groceries,
Homes of which two centres are functioning as Model medicines, apply for vehicle pass and hospital facilities
Sayamprabha Homes (Multi Service Day Care Centre to the needy during the Covid-19 pandemic. The
for Elderly). These day care facilities offer opportunities number of elderly who got benefits under this helpline
for senior citizens to mingle with their own age group. within three months of its implementation is 2097.
The second innings home project intends to turn Based on the concept “Neighborhood Network
Government old age homes into second innings homes in Palliative care,” Kerala has an extensive network of
as model state of the art, multi-service community age community-owned palliative care programs, mostly
care to improve the quality of life of senior citizens by availed of by very old persons during the final stages
providing basic amenities like shelter, food, medical of their lives. There is no central repository maintained
284 | KERALA DEVELOPMENT REPORT 2021

for the number of units and beneficiaries. The number a clear rights-based conceptual framework, vision,
of community owned palliative care clinics in Kerala is purpose, and outcomes, enabling the elderly to live
387 (Table 19.5). In addition, as per the Palliative Care healthy, empowered, and valued lives, supported by a
Policy issued by Government of Kerala, 2008, palliative care system that provides a basic standard set of quality
care is integrated into primary health care services.35 services to the elderly on an equitable basis and per
Vayo Souhruda gram panchayat. This is a scheme need.
implemented by the Social Justice Department of The potential of elders to contribute to society
Kerala under the State Old Age Policy, 2013 for is significant.37 The policy should be based on the
transforming all panchayats in the State into old-age principle that the elderly can and should contribute
friendly panchayats. The Vayo Souhruda panchayat to the development of society. Consultation with the
project is being implemented with the assistance of the elderly and other stakeholders is essential.
Centre for Gerontological Studies (CGS), a voluntary It is proposed that the policy be based on a three-
organisation located in Thiruvananthapuram. A project tier system with home-based care as the first option,
for elderly is also under implementation in Alappad. community-based care second, and institution-based
care as the last option. Local governments should
Subsidised Fares for Travel on Government
explore and encourage suitable models of assisted
Transport. The Kerala State Road Transport
living facilities that will allow the elderly to live
Corporation (KSRTC) offers reservation; rail travel has
independently but with limited supervision and care,
concessionary rates for senior citizens.36
coordinate services by outside health care providers; and
A Vision for Kerala 2050 monitor resident activities to help ensure their health,
These pressing challenges of today, exacerbated by the safety, and well-being. Such assistance can include the
Covid-19 crisis, cannot be met by merely expanding administration or supervision of medical needs, and
the present systems, infrastructure and facilities. There provision of personal care services.
is need for a new forward-looking approach and vision, Local governments will play a central role in
one that will perceive elders not just as a vulnerable implementing the policy. The policy should take a
group who need protection, but also as a group with multi-sectoral approach with strong engagement from
great potential to contribute to the socio-economic diverse sectors and different-levels of Government
development of the community. as noted in WHO’s global strategy and action plan
Framework for a new elderly policy on ageing and health. It will tie together the various
First, a major activity will be a complete mapping of responsibilities for elderly care shared by different
people of above 60 years of age in the State, with the tiers and sectors of Government into a cohesive and
LSGDs, WCD (anganwadi workers), SJD, Health consolidated vision. Strong partnerships are essential;
Department (ASHA workers) converging to undertake not only for the different Government institutions but
this mapping. also a clear role for community-based organisations,
Second, the elderly are not a homogeneous group NGOs, and the private sector.
but have varied needs and problems so further age A basic set of standard multi-sectoral services should
categories will be needed, as also by gender, and other be made available to the elderly at different stages.
characteristics such as SC/ST population and disability. Their needs differ as they grow older, and the policy
Current policy can be revised to include an should ensure different packages that will meet the
institutional framework to address the challenges of varying needs. The policy should ensure coordination
rapid population ageing. The policy should establish between aged care and medical care, essential to prevent

35
There can be common patients in community owned and Government run palliative care clinics. The data is captured from
the Palliative Care Project- State Resource Centre and Coordinating Unit, National Health Mission
36
https://economictimes.indiatimes.com/wealth/plan/here-are-all-the-benefits-available-to-senior-citizens/
ticleshow/58655579.cms
37
In the United Kingdom, the contributions of older persons through taxation, consumer spending and other economically
valuable activities such as social care provision and volunteering were estimated to be worth nearly GBP 40 billion in 2010,
which is more than expenditure on them through pensions, welfare and health care combined, and this number is set
to rise to GBP 77 billion by 2030 (Cook 2011). https://www.un.org/development/desa/ageing/wp-content/uploads/
sites/24/2017/07/UNDP_AARP_HelpAge_International_AgeingOlderpersons-and-2030-Agenda-2.pdf
 ELDERLY | 285

duplication and provide a continuum of services. The policy should take special note of issues related
The policy should guide on how to form effective to women and people from disadvantaged communities.
partnerships and contractual/partnership arrangements Women constitute the majority of the elderly. Elderly
with hospitals and stakeholders for service provision, from tribal and SC backgrounds are particularly
training, and technical support. disadvantaged economically and socially. There should
Significant capacity strengthening would be needed be a clear focus on these groups and any action plans
to translate the more complex cross-sectoral aged care should be responsive to their needs and priorities. The
system into a reality. Through a need assessment, the policy should pay special attention to the needs and
Government should identify the capacity gaps in problems of the very old (80 and above years of age).
knowledge and skills, and define a basic service package, The Government should also consider how to create
and training and human resource development to sufficient fiscal space to meet the burgeoning social
develop necessary capacity and knowledge for those security payments that will be needed for the elderly.
engaged in the management, delivery and monitoring Innovative measures will need to be considered and
of aged care services. planned to ensure security for the elders.
286 | KERALA DEVELOPMENT REPORT 2021

Chapter 20
Gender and Development
Gender and Employment and 24.1 per cent in urban areas). The all India female
Studies have shown that the gains made through social work participation rate was lower, 23.3 per cent. The
and human development, political empowerment, and all India urban female work participation rate was even
institutional reforms have had profound effects on lower (18.4 per cent).
Kerala’s labour market, not least by enhancing wage It is well known that official labour statistics
rates in the State. undercount women workers, but even so, it is clear that
As in other parts of India, there are gender-based women workers as a proportion of all women in Kerala
differences in the labour market, with women over- is above the Indian average.
represented in the informal labour market. At the same
Educational Level of Women Workers
time, a unique and distinguishing feature of the labour
Work participation by educational-level shows that
market in Kerala is the unionisation of workers in
the likelihood of getting a job is higher if the level of
unorganised sectors – including the major traditional
education is higher. For example, among graduates, 30
industry, coir, and subsequently other traditional
per cent of women in Kerala were in the work force as
sectors, such as cashew and agriculture – in which the
compared to 21 per cent at the national-level.
proportion of women workers is very high. We find
With more educated women and more women
that the average wage rate for a woman worker in the
State, though lower than the male wage rate, has been entering the workforce the main challenge is, of course,
above the all India wage for a long time. The existence unemployment. The unemployment rate is higher for
of Welfare Fund Boards, another unique feature of the women in Kerala than the Indian average, reflecting the
labour market in Kerala, ensures some social security fact that more women seek employment in the State.
benefits to women workers registered with the Boards. Industrial Distribution of Workers
This section focuses on salient aspects of female Historically, the pattern of female employment has been
employment in Kerala. more diversified (even in rural areas) in Kerala than
Work Force Participation Rates in Kerala elsewhere in India. A remarkable feature of the female
Workforce participation rates, as per the official labour workforce in Kerala is the high share of a select number
force survey, have been lower in Kerala than at the all of service sector activities in which wages per worker are
India-level, particularly in rural areas. However, Kerala high and require skilled and educated workers (Thomas
has always had one of the highest (among States) rates of 2018).The proportion of women employed in public
female work force participation in urban areas. This fact administration education, health, information services
needs to be highlighted, since it reflects the benefits of (all part of community, social and personal services),
higher literacy-levels in Kerala. In 2018-19, for persons and finance and business, are very high, almost double
aged 15 and above, the female work participation rate that of all India figures and higher than States such as
in Kerala was 25.4 per cent (26.4 per cent in rural areas Gujarat and Karnataka (ibid.).

Table 20.1 Worker Population Ratio according to usual status (usual principal status plus subsidiary status) for
persons aged 15 and above 2018-19, Kerala and all India in per cent
Kerala
Rural Urban Total
15 and above Male Female Person Male Female Person Male Female Person
(2018-19) 67.6 26.4 45.5 67.7 24.1 44.1 67.7 25.4 44.9
All India
Rural Urban Total
15 and above Male Female Person Male Female Person Male Female Person
(2018-19) 72.2 25.5 48.9 68.6 18.4 43.9 71.0 23.3 47.3
Source: Periodic Labour Force Survey (PLFS), 2018-19
 GENDER AND EMPLOYMENT | 287

Table 20.2 Worker Population Ratio according to usual status (usual principal status plus subsidiary status) in
2018-19 for 15 years and above of different general education-level for Kerala and all India in per cent
Kerala (Rural + Urban) All India (Rural + Urban)
  2018-19 2018-19
Literate and up to primary 25.30 27.30
Middle 26.00 19.30
Secondary 22.30 14.50
Higher secondary 15.10 12.00
Diploma 33.70 34.10
Graduate 29.80 21.30
Post graduate and above 51.1 35.5
Source: Periodic Labour Force Survey (PLFS) 2018-19
Table 20.3 Percentage distribution of female workers in usual status (usual principal status plus subsidiary
status) by broad status in employment in 2017-18 and 2018-19
Kerala
2017-18 2018-19
Self-employment Regular/Salaried Casual Self-employment Regular/salaried Casual
OAE Helper OAE Helper
Rural female 21.23 9.23 41.34 28.15 25.60 8.50 33.6 32.2
Urban female 22.79 5.67 55.75 15.8 22.50 7.20 53.2 17.10
Overall female 21.92 7.71 47.52 22.86 24.3 7.9 42.3 25.5
All India
Rural female 19.03 38.70 10.52 31.76 21.8 37.9 11.0 29.30
Urban female 23.72 11.02 52.14 13.12 24.9 9.6 54.7 10.7
Overall female 20.21 31.71 21.03 27.05 22.5 30.9 21.9 24.7
Note: OAE- own account worker or employer
Source: Periodic Labour Force Survey (PLFS) 2018-19

Type of employment of course, in the year of a major flood, when special

Another useful characterisation is of the type or status emphasis was placed on NREGA and AUEGS and
of employment, that is, whether the worker is self- self-employment (particularly own account enterprises)
employed, engaged in regular salaried employment or promoted through micro/nano enterprises to assist in
as a casual worker. The situation of working women in post-flood recovery.
Kerala is very distinct in this respect from the all India Mahatma Gandhi National Rural Employment
picture, with a significantly higher proportion of regular Guarantee Scheme (MGNREGS)
workers: 47.5 per cent of women workers were regular In Kerala over 90 per cent of the workers in National
workers in 2017-18 (41.3 in rural and 55.8 in urban Rural Employment Guarantee Act (NREGA) are
areas). For India the figures were 21.0 per cent (10.5 women. The spike in person days of employment
per cent in rural and 52.1 per cent in urban areas). This generated in 2018-19 needs to be noted (Table 20.4);
shows better (regular) employment for women workers notified unskilled wage rate for this programme in
in Kerala as compared to the national average. 2017-18 was Rs 258 per day and was enhanced to Rs
There was a decline in female regular workers in 271 from April 1, 2018 onwards. In the context of the
Kerala in 2018-19, with a corresponding rise in self- pandemic, the unskilled wage rate has been increased
employment and casual labour. This change was, further to Rs 291. The Government also initiated the
288 | KERALA DEVELOPMENT REPORT 2021

Table 20.4 Status of MGNREGS employment provided in Kerala from 2016-17 to 2020-21
Year No. of No. of % of Person Average No. of % of
active households house days days of Families household
job who have holds who generated employment completed completed
cards jobs got jobs (No. in provided to a 100 days 100 days
(in (No. in lakh) lakh) household against total
lakh) households
employed
2016-17 20.31 14.52 71.49 684.62 46.97 1,13,186 7.76
2017-18 19.39 13.04 67.25 619.59 47.24 1,17,370 8.94
2018-19 20.20 14.78 73.19 975.25 65.97 4,41,480 29.80
2019-20 20.00 14.38 71.95 801.89 55.73 2,50,584 17.42
2020-21 (as on 19.09 11.19 58.64 272.17 24.31
August 21, 2020)
Source: MGNREGA database
process of geotagging all Mahatma Gandhi National provided by the scheme was utilised to complement
Rural Employment Guarantee Scheme (MGNREGS) other scheme to hasten the development potential of all
assets, thereby enabling greater transparency and their types of projects. At the same time, this also addresses
better real time identification. the problem of finding productive and asset creation
Special Initiatives Undertaken in the Aftermath of works for MGNREGS beneficiaries. Keeping the
the Flood 2018 above in mind, extensive plans have been formulated
In the post-flood restoration efforts undertaken in the to bring in line departments into the planning process
State, MGNREGS played a crucial role in rebuilding of MGNREGS. The scheme has been converged with
Kerala through renovation of the public assets and LIFE Mission also to ensure maximum employment.
livelihood regeneration of vulnerable sections of the The scheme is also a part of “Subhiksha Keralam”
society. Government of India originally sanctioned programme and has contributed to soil-preparation,
funds to generate 5.5 crore person days in 2018-19. construction of cattle sheds and poultry sheds,
In order to overcome the flood situation, as per the renovation of ponds and water bodies and rainwater
request of the State Government, Government of India harvesting activities.
sanctioned additional funds to generate 7 crore person Ayyankali Urban Employment Guarantee Scheme
days under MGNREGS. At the end of the financial year (AUEGS)
2018-19, 9.75 crore person days was actually ensured. A unique initiative of the State Government was the
Initially, the State had got a sanction for additional launch of the Ayyankali Urban Employment Guarantee
50 days of employment per household in seven heavily Scheme in 2009-10, on the pattern of MGNREGS for
flood affected districts. Subsequently, an additional rural areas. The Scheme provides employment guarantee
employment of 50 days has also been given in flood to urban households (100 days of wage employment to
affected regions for 87 gram panchayats in six partially every household willing to participate) so as enhance
flood affected districts. In 2018-19, after the flood (from livelihood security in urban areas. Creation of durable
August 16, 2018 to March 31, 2019), employment has community assets and strengthening the livelihood
been provided to 12.02 lakh individuals from 10.31 resource base of the urban poor is also envisaged under
lakh families, of which 6.12 lakh individuals from 4.83 the scheme. The scheme mandates that at least 50 per
lakh families were newly employed. After the flood, cent of the beneficiaries shall be women.
new job cards were issued to 82,605 families. As a result Cleaning of drainage and streets on a regular basis
of providing 7.63 crore person days, Rs 2068.74 crore is included in the Ayyankali scheme. The devastating
worth of employment was generated. floods of 2018 affected many urban local governments
The flexible nature of MGNREGS makes it a scheme and thousands of urban people lost their livelihood.
widely suitable for convergence with other schemes. Thus, priority was given to the flood affected urban
Both the human power and material component local governments for enhancing the average person
 GENDER AND EMPLOYMENT | 289

Figure 20.1 Number of families completed 100 days of employment under MGNREGS as on March 31, 2020
Source: Commissionerate of Rural Development, Government of Kerala

days of employment. Convergence of PMAY – LIFE interest free loans up to one lakh rupees per female-
with Ayyankali Urban Employment Guarantee Scheme headed household to flood affected Kudumbashree
has been ensured to create additional workdays. In order members who were the beneficiaries of immediate
to provide maximum workdays and ensure smooth flood relief of Rs 10,000 of the State Government. The
implementation of the scheme, essential tools and small interest rate on the loan of 9 per cent was borne by
machines are also provided under this scheme. Dairy the Government. Up to August 2019, interest free loan
farming has also been introduced under the scheme. of Rs 1,680.13 crore had been provided to 1.95 lakh
Dairy farmers who have more than two cattle can be people through 28,212 NHGs.
given employment and wage through the scheme as per Chief Minister’s Helping Hand Loan Scheme (Rs
stated norms. 2000 crore loan scheme)
In 2016-17, 5.06 lakh persondays were generated. In the wake of the pandemic, a new interest-free
In the financial year 2017-18, 8,46,432 person days loan scheme was announced, the Chief Minister’s
were created. In the same year, 28797 households “Sahayahastham” (Helping Hands), by the
and 36288 women were provided employment and Government of Kerala. As on September 2020,
251 families completed 100 days of employment. In 2,05,000 Neighbourhood Groups ( NHGs) with 23
2018-19, the AEUGS created 16,68,195 person days of lakh members have benefited.
employment in various municipalities and corporations; Micro Enterprises (ME)
85,943 households and 80,735 women were provided The total number of Micro Enterprise (ME) Units in
employment and 1,225 families completed 100 days of the State is 26,448. These include the following types
employment. of activities.;
Kudumbashree • Coir Defibring Units. Five Kudumbashree coir
In 2015-16, 39.87 lakh families were covered in defibring units were started at Kannur (2), Calicut,
Kudumbashree, as part of 2.58 lakh Neighbourhood Kasaragod and Thrissur. Work is progressing at three
Groups (NHGs). The coverage has grown and, now, more units in Kottayam, and Thiruvananthapuram.
Kudumbashree has a participation of 44.91 lakh • Common Facility Centres. Formation of 14
women and 2,99,297 NHGs. Common Facility Centres in Parassala, Punnalur
Resurgent Kerala Loan Scheme (RKLS) and Padinjarathara.
The Government of Kerala introduced the “Resurgent • Haritha Karma Sena. Up to March 2019, 27988
Kerala Loan (RKL) Scheme”, with the aim of providing Kudumbashree women from 888 LSGIs got
290 | KERALA DEVELOPMENT REPORT 2021

first-level training in waste management through reasonable prices, and to provide a steady income
Kudumbashree and Haritha Kerala Mission with for participants. This scheme aims to ensure a
fund assistance from Kerala Institute of Local steady and non-fluctuating market price for broiler
Administration (KILA). As per the latest data chicken. Kudumbashree Broiler Farmer's Producer
Haritha Karma Sena units have been formed in Company Ltd (KBFPCL) has started four outlets
1033 LSGIs. in Ernakulam District and two in Thrissur District.
• Scheduled Caste Department – Gavi livelihood In the Kerala Chicken project, Kudumbashree is
Project. A comprehensive tourism oriented going to establish 100 sales outlets in the State. In
livelihood programme for SC beneficiaries was October 2020, 10 outlets were started as part of the
initiated to establish five mini café units on the way Government’s 100 days programme.
from Pathanamthitta to Gavi and two tourist bus • Aadugramam (Value Chain Programme).
services to capture the tourism potential of Gavi. The Aadugraamam project is an initiative to
• Construction Labour. In order to avail of support goat-rearing so as to provide a regular
the opportunities in the construction sector, source of income to Kudumbashree members.
Kudumbashree members interested in construction The programme will establish 14 Goat Producer
activities were identified, trained and registered in Societies, one in each district.
respective local governments and entrusted with • Ksheerasagaram. The Ksheerasagaram project is
construction projects of local governments. In a cow rearing initiative which provides a capital
2019-20, 318 constructions groups (251 rural units subsidy to Kudumbashree groups to establish cow
and 67 urban units), with 2347 members were rearing units. 410 units have been established
formed across the State and have been employed to throughout the State.
construct 269 houses in convergence with various • Dairy Value Added Product Units. A total of 27
Departments like Scheduled Tribes Development value added units in dairy sector were started and
Department along with the LIFE Mission and the product is being marketed under the brand
PMAY. name Milky Latte. This will provide a steady
• ARISE Skill Campaign. As part of post-flood income for Kudumbashree members and also
initiative for resurgent Kerala, Kudumbashree ensure safe and clean dairy products to consumers.
started a skill campaign called ARISE (Acquiring Tribal Interventions
Resilience and Identity through Sustainable Tribal interventions by Kudumbashree ensured 96.8 per
Employment) to provide skill training to 50,000 cent inclusion of members to its NHG fold, rigorously
candidates in 10 selected areas. The ten fields are working for the empowerment of tribal families
housekeeping, house maid services, plumbing, through continuous capacity building programme at
electronic repair, electrical work, day care, the hamlet-level. Every programme reaches hamlets
agriculture labour, sales, data entry, and laundry through community volunteers named as animators.
and ironing. As an after-flood intervention, ARISE • Self-reliant tribal NHGs. The main objective
technicians repaired 360 houses in August 2019. of tribal intervention schemes undertaken by
As on 2020, around 14,049 people were trained Kudumbashree is to set a stable platform for
and 4883 candidates were positioned. implementing development activities among 20
• Joint Liability Groups (JLGs). Kudumbashree
tribes. Here 2303 NHGs have been recognised as
started provision of interest subsidy and area
self-reliant NHGs as on September 11, 2020.
incentive to Joint Liability Groups (JLGs) as
• NHGs capacity building programme. In this
well as subsidy to various agro based enterprises
(medium and small scale value addition units and scheme, 1222 tribal NHGs have been selected for
agri business ventures). The number of JLGs has upgrading as best NHGs. Provision of all necessary
increased to 71,572 as on September 1, 2020 (with capacity building training for these NHGs was
3.54 lakh Kudumbashree members) cultivating an completed in every district by March 31, 2019.
area of approximately 50,000 ha, under lease land • Corpus Fund to new NHGs and new JLGs. The
collective farming. tribal special project facilitates the creation of ST
• Kerala Chicken – Broiler Farms. The main NHGs as well as at Area Development Societies
objective of the Kerala Chicken project is to (ADS), if necessary, in areas where there are more
ensure safe and clean birds to consumers at than two tribal NHGs. The project provides a
 GENDER AND EMPLOYMENT | 291

corpus fund of Rs 10,000 to all newly formed ST with disabilities and self-help groups (SHGs) for
NHGs. undertaking micro projects such as pickle-making,
• Traditional micro-enterprise unit. The embroidery, making artificial ornaments, and curry
promotion of traditional as well as modern powder units. Under the Kaivalya scheme of the
livelihoods and enterprises is also envisaged. These Labour Department, financial assistance has been given
units are designed to conduct tribal art/craft/ethnic to 7749 persons with disabilities, registered with the
food festivals both at district and State level so as to employment exchanges, for self-employment, and of
motivate new entrepreneurs. them, 2708 are women beneficiaries.
• Animal husbandry based livelihood Kerala State Women’s Development Corporation
programmes. Support for income-generation (KSWDC)
through animal husbandry for 50 tribal vulnerable The Corporation distributed self-employment loans
families has been envisaged. This includes goat- to 6472 women under general category through Plan
rearing and small poultry units both for individuals funds. Under the flagship programme on finishing
and groups. schools, the Resource Enhancement Academy for
• Bridge Course (Gothragurukulam) and Career Heights (REACH) at Thiruvananthapuram
PSC/competitive exclusive programme and Kannur imparted skill training to 2804 students.
(Gothramunnettam). A “Bridge Course” is Entrepreneurship Development Programme (EDP)
yet another innovative idea being implemented training was imparted at the panchayat-level (7 districts)
by Kudumbashree Mission in tribal hamlets of to over 800 women.
Attappady in order to support those who are weak KSWDC launched Vanamitra Kendra, a skill
in study and show inconsistent results at school. development centre for tribal women in Chakkittapara,
Altogether, 1081 children benefitted from this Kozhikode, for developing sustainable livelihood for
educational initiative as on September 11, 2020. tribals. Training was imparted to 2683 tribal women
Competitive exam-based crash courses are being in garment stitching, bamboo product making and
provided to 2893 tribal students. advanced training in tailoring was given to four women
• District initiative for tribals. The District Mission from the group to set up a unit.
will develop a separate plan for every tribal hamlet, The increase in women’s employment in some
and it will be implemented in connection with the Departments like Police and Excise has been
District initiative programme. commendable. In 2017, 605 police constables were
Labour Department recruited (including a police battalion of women,
Saranya. This is a self-employment scheme for the commanded by a woman commandant) with another
most vulnerable sections among women registered 154 women in 2018. In the Excise department 133
at the Employment Exchanges, including widows, women were inducted for patrolling in 2018.
divorced, deserted women, spinsters above the age of Table 20.5 shows the increase in formal employment
30 and unwed mothers belonging to Scheduled Tribes. in the Information Technology (IT) sector and Public
Under this scheme interest-free bank loans of up to Rs Sector Undertakings (PSUs) in Kerala. Women have
50,000 with a 50 per cent subsidy (a maximum of Rs gained employment here too though the gender break-
25,000) is given for starting self-employment ventures. up of data is not available.
In 2017-18,3828 beneficiaries got this assistance; in Summing up, with all these initiatives, there has been
2018-19, there were 3546 beneficiaries. About 2200 a real increase in female workers in the State, primarily
women who have received training in activities they in self-employment (own account enterprises) and
want to pursue will be provided with self-employment casual labour, but also in in regular formal employment.
assistance under Saranya in the 100 days programme of Gender Wage Gap
the Government. Using data from the Periodic Labour Force Survey
Kerala State Handicapped Persons Welfare (PLFS) of 2017-18, we examine gender gap in wages
Corporation (Table 20.6). Some distinct features emerging from
On the recommendation of the Corporation, various Table 20.6 are as follows:
banks have sanctioned loans to 681 persons with • Earnings in each type of employment are higher
disabilities for self-employment activities. Financial for women (and men) in Kerala, in rural and urban
assistance of Rs 5000 each was given to 316 persons areas, than the national average.
292 | KERALA DEVELOPMENT REPORT 2021

Table 20.5 Employment generation in Information Technology (IT) sector and Public Sector Undertakings
(PSUs) in Kerala in number
IT parks/ startups 2017-18 2018-19 2019-20
Technopark 56,000 60,000 62,000
Infopark 37,000 40,000 47,000
Cyberpark 266 558 748
Startup Mission 10,000 15,000 25,000
PSUs 15,242 13,838 15,719
Source: Industries Department

Table 20.6 Average daily wage for those aged 15 and above in employment by sector and sex, 2017-18
Casual Employment
All India Kerala
Sector Male Female Total Sector Male Female Total
Rural 265.2 172.3 243.9 Rural 533.9 284.7 478.9
Urban 320.5 200.7 302 Urban 506.3 288.7 477.5
Total 276.4 176.1 254.8 Total 522.5 285.8 478.3
Gender wage gap(F/M ) 63.4 54.6
Self employed
All India Kerala
Sector Male Female Total Sector Male Female Total
Rural 260.1 59.5 221.6 Rural 440.6 168.6 397.9
Urban 478.8 179.2 434.4 Urban 545.2 270.2 506.9
Total 318.4 84.6 276.1 Total 489.9 212.8 448.6
Gender wage gap(F/M) 26.6 43.4
Regular Salaried
All India Kerala
Sector Male Female Total Sector Male Female Total
Rural 453.9 309 426.6 Rural 579.1 430 523.5
Urban 614.7 505.1 591.1 Urban 658.2 688.7 670.1
Total 554.4 439.2 530.8 Total 621 571.8 602.2
Gender wage gap (F/M) 79.2 92.1
Note: Male (M), Female (F)
Source: Periodic Labour Force Survey (PLFS), 2017-18

• As expected, wages are higher for women in regular support to reduce the gender wage gap.
salaried employment relative to those in other types Looking Ahead
of employment. The efforts of the Government to generate employment
• Nevertheless, there is a wage gap in Kerala, for women has indeed yielded positive outcomes in
particularly among self-employed and those in terms of a significant increase in female employment.
casual employment. There is urgent need to sustain this initiative and
As noted earlier, there has been a large increase in provide quality employment, given the fact of an
self-employed women in Kerala in 2018, especially as educated workforce, with emphasis on new skilling
own-account workers and not helpers. Self- employed programmes. It is worth emphasising here that skills
women in Kerala earn a much better wage than women involved in early childhood care, education of children,
at the all India-level, but there is need for more public geriatric care or “soft skills” like communication are as
 GENDER EMPOWERMENT | 293

important as other types of professional skills. World Economic Forum’s Global Gender Gap Report
There has been sizeable recruitment of women since 2006). Indicators have also been developed in
workers in formal employment in the Government connection with Sustainable Development Goal 5
sector – in the police force, health, education and (SDG 5) to track Gender Equality.
public sector undertakings, and the next PLFS Round In the Section that follows we highlight some of
should reflect this. the major State interventions to take stock of what
Studies have shown that, internationally, women has been achieved on gender equality and women’s
have been disproportionately affected by the pandemic. empowerment.
Existing gender inequalities in the labour market Highlighting Kerala’s Interventions and
in terms of the work available, wages, and working Achievements for Empowering Women
conditions have been exacerbated. Women are Four major interventions need to be noted:
employed in sectors that were hit particularly hard by 1) Gender aware planning at the local-level in the
the pandemic; these include retail trade, personal and context of decentralised planning since 1996.
hospitality services, tourism, and traditional industry. 2) Setting up of Kudumbashree, a community
The increase in female employment must be sustained organisation of Neighbourhood Groups (NHGs)
by State support and by ensuring equal participation of women in 1998 as part of the State Poverty
of women in skilling and training programmes. Skill Eradication Mission.
training programmes should be used as instruments of 3) Setting up a separate Department of Women and
empowerment and social change. Child Development in 2017 by bifurcating the
Towards Gender Empowerment Social Welfare Department.
Giving gender a central place in planning and 4) Gender Budgeting in the 11th Five-Year Plan,
development is important because discrimination more systematically developed in the 13th Plan.
against women is not solely a women’s issue but an issue These interventions did result in commendable
of social progress and transformation as a whole. The achievements: (a) sensitised Government and society
13th Five-Year Plan introduces the approach to gender to the fact that Plan or Budgets impact differentially
and development in some detail: on men and women, and hence women’s needs have
Socio-political and economic advance among women to be built into the planning process; (b) made women
in Kerala is not commensurate with the historic more visible in public spaces; (c) enhanced female
achievements of women in the spheres of education and workforce participation rates; (d) created an enabling
health in the State. While the extraordinary historic gains environment for women to work; (e) consciously
of women in Kerala cannot be underestimated, there are planned for vulnerable/excluded women to empower
still important spheres in which women’s equality has
them; (f ) addressed the nutritional requirements
not been achieved, and in which discrimination persists.
Work participation rates among women are low, rates of of women and children; and (g) evolved innovative
unemployment are high, and gender differentials in the ways of addressing gender based violence (GBV) and
labour market persist across caste, income, and education rehabilitation of survivors.
categories. A substantial section of the women’s labour Gender aware planning
force is concentrated in traditional occupations – coir The 93rd and 94th Constitutional Amendments
work, cashew processing, bamboo-work, handlooms, heralding decentralised governance with one third of
and plantation-work, for example – that are now
seats reserved for women provided an opportunity
stagnant or in decline. The representation of women in
elected bodies – Parliament, the Legislative Assembly
to address women’s issues at the grassroots-level.
– is low. The women’s movement in Kerala has drawn Decentralisation in Kerala, taken up in a campaign
attention to domestic violence and other crimes against mode, meant not only decentralisation of funds,
women in Kerala. Progressive social forces have correctly functions and functionaries but also of planning, which
emphasised the need for policy that enhances economic has enabled Kerala to carve out a different approach to
independence, independent participation in political and development which is much more people-centric.
social life, and freedom in public spaces for women. Introduced in 1996 in the 9th Plan, after the local
Education, health and income are necessary but body elections in 1995, the attempt to integrate gender
not sufficient factors for women’s full empowerment. into planning at the local-level by (a) mandating that
Scholars urged that other, non-conventional indicators LSGIs should set apart 10 per cent of the devolved Plan
should be studied as well (Mukhopadhay 2005, UNDP, funds for women specific projects (WCP); and (b) that
294 | KERALA DEVELOPMENT REPORT 2021

gender impact of all other schemes should be assessed, Panchayat, Kottayam district started in the 9th Plan;
appears to be a first attempt in the country towards and (3) Distribution of menstrual cups, a project
“gender aware planning.” Despite its disappointing under the women component Plan of Vazhoor gram
beginning in 1997-98, there was some improvement panchayat, Kottayam district, started in 2007-2008.
in the following years. Corrections were made and At present, there are 1200 local governments, which
guidelines evolved for designing women's projects and include 941 gram panchayats, 152 block panchayats,
the allocation pattern changed considerably in favour 14 district panchayats, 87 municipalities and 6
of better quality and more diversified projects. While corporations. While the reservation for women is now
decentralised governance certainly enlarged the choices 50 per cent in Kerala, it is so also in decision making
and capability-levels of elected women representatives positions, presidents/vice presidents/chairpersons/vice
at the individual-level, overall plan performance at chairpersons/mayor/deputy mayors. Women elected
the local-level in relation to gender issues was uneven to Panchayati raj institutions in Kerala constitute more
since a recognition of needs/interests remained largely than 50 per cent, in fact 54 per cent, of all elected
at the level of rhetoric in policy making and was not representative, while it was 46 per cent nationally.
translated into appropriate projects at the level of In the elections to local bodies, held in December
implementation. 2020, 11,837 women were elected to the five tiers of
However, renewed efforts were taken by setting up the panchayat structure (Table 20.7). The difference
new guidelines for formulation/implementation of local in these elections is that many of the candidates were
plans in the second phase of decentralised planning young. The youngest person to get elected to the
(coinciding with the 13th Plan). Some new schemes have prestigious post of Mayor of Thiruvananthapuram was
been initiated and some older schemes were revamped to 21-year old Arya Rajendran, a second year student in
become model projects now such as setting up of Gender the local college, setting several new firsts in Kerala and
Resource Centres, and rejuvenated Jagratha Samithis. the country.
It is interesting to note that three projects started Kudumbashree
some years ago, have now become model projects. Kudumbashree, a community organisation of
These are (1) Vanitha library, a project under the Neighbourhood Groups (NHGs) of women set up
women component Plan of Balussery gram panchayat, in 1998 as the State Poverty Eradication Mission
Kozhikode district, which started as “A Space for functioning under the Local Self Government
Women” in 2000; (2) Vanitha canteen, a project under Department has become a world model for economic,
the Women Component Plan of Vaikkom Block social and political empowerment of women. Its growth

Table 20.7 Women elected representatives in local governments, Kerala, 2020 in numbers
District Grama Block District Municipality Corporation
panchayat panchayat Panchayat
Thiruvananthapuram 710 83 14 84 54
Kollam 677 83 14 76 31
Pathanamthitta 461 60 9 79
Alappuzha 650 85 12 126
Kottayam 636 78 11 108
Idukki 421 55 7 39
Ernakulam 704 103 15 224 41
Thrissur 798 114 12 148 31
Palakkad 805 101 16 129
Malappuram 947 117 17 252
Kozhikode 658 91 14 140 42
Wayanad 224 29 9 52
Kannur 636 79 12 152 29
Kasaragod 330 42 9 52
Total 8657 1120 171 1661 228
 GENDER EMPOWERMENT | 295

has been phenomenal, bringing together women from Insurance scheme, 5.3 lakh Kudumbashree members
all spheres of life in rural and urban areas, and has have been enrolled.
helped women to come out of the kitchen into the Kudumbashree gender development programme
public sphere. Starting initially with thrift and loan Besides economic empowerment, Kudumbashree
activities, the NHGs focused strongly on empowering promotes social development of women through their
women through income generation activities and participation in various ways in decision making processes
seeking micro-credit, besides engaging in a range of and programmes to tackle atrocities against women.
other ;activities such as health, nutrition, agriculture,
and social development. In the year 2015-16, 39.87 Snehitha Gender Help Desk. This is one supportive
lakh families were covered under 2.58 lakh of NHGs. activity which works in all 14 districts to provide
As of now, Kudumbashree has a participation of 44.91 support and rehabilitation service to distressed women
lakh women and 2.99 lakh NHGs. It also converges and children. There are 647 Gender Resource Centres
with Panchayati Raj institutions in several schemes. working across Kerala as on January 10, 2020. Other
During the last four years of the Government, activities of training, research, leisure are also organised
concerted efforts, both quantitative and qualitative, were in these centres. Gender sensitisation training was given
taken to expand its area of operation to include elderly, to 1064 CDS chairpersons till 2020.
disabled and transgenders; to capture the employment Rangasree. This is a programme to train selected women
opportunities arising in the State; and also to work out from Kudumbashree in theatre with the aim of establishing
business models to make enterprises self-sustaining. community theatres in every CDS of the State. It also
In this section we provide information on aims to disseminate messages of social justice, equality,
Kudumbashree’s thrift and credit activities, while and sustainable development through drama. As of now
micro-enterprises in agriculture and non-agricultural there are 14 Rangasree units in the State.
activities are discussed in the Section on Employment. Some critics argue that the vast network and
Thrift and credit activities. Up to 2015-16, the thrift collectivity of women mobilised by Kudumbashree
amount was Rs 2932 crore and the internal lending was could have enabled women to lay claims to rights and
12,134 crore. As of 2019-20, the total thrift collections resources. However, it must be remembered that these
by NHGs in the State comes to Rs 4,982 crore and the interventions, starting with decentralisation, played an
internal lending generated is to the tune of Rs 20,047 extremely critical role of pulling the women out of the
crore. The total amount which has been mobilised households into the public sphere, mobilised them,
under linkage loans (cumulative) comes to Rs 19,460 building their individual capabilities and enhancing
crore for 2,83,406 NHGs. their choices. A larger transformatory change, it could
Interest Subsidy. The Government of Kerala had be argued, needs a larger, concerted, sustained effort by
launched a new interest subsidy scheme in the year State and civil society.
2016-17 and NHGs are eligible for interest subvention It is in this context that the setting up of a separate
to avail the loan facility at an interest rate of 4 per cent Women and Child Development Department and
on credit up to Rs 3 lakh. An amount of Rs 84.47 crore the more systematic approach to Gender Responsive
was disbursed to 1,61,551 NHGs as interest subsidy till Budgeting at the State-level in the 13th Plan (initiated
September, 2020. in the 11th Plan), should be viewed as the third and
fourth turning points in approaches to gender equality
Matching Grant. Matching Grant at an amount of 10
and women’s empowerment in Government policy
per cent of the savings of the linked NHGs has been
making in Kerala.
provided subject to a maximum of Rs 5,000 per NHG.
A total of 41,125 NHGs received matching grant till Setting up of the Department of Women and Child
Development
August 2020.
One significant achievement of the Left Government
Revolving Fund. Rs 50,000 is provided to all Area was the setting up of the Department of Women and
Development Societies (ADS) to support livelihood Child Development (WCD) in June 2017, (as promised
activities in the field. Revolving Fund distributed to in the Election Manifesto) bifurcating the Social Justice
386 ADSs till March 31, 2019. Department to give a more focussed thrust to activities
Revival of Insurance Scheme.
Under the aimed at social assistance and empowerment of women
Kudumbashree Sthree Suraksha Yojana (KSSBY) and children. With the appointment of district-level
296 | KERALA DEVELOPMENT REPORT 2021

officers, the WCD directorate started functioning a being a normal, biological phenomenon.
few months later, implementing both State and central 4) Another very innovative programme was “Pothu
schemes. It is an umbrella structure that includes the State idam entethum” a walk at night programme held
Women’s Commission, State Women’s Development on Nirbhaya Day (December 29th) in the State
Corporation, State Commission for Protection of to boost the confidence of women, removing fear
Child Rights, Gender Park, Nirbhaya project, women of going outdoors at night and ensure the role
and children homes, ICDS, Anganwadis. A large part of society in accepting public space as belonging
of its working is concerned with running of 44 welfare to all. It got a huge spontaneous response from
institutions for the care, protection and rehabilitation women and was conducted in 600 centres across
of women and children (16 for women and 28 for the State but had to be stopped due to Covid-19.
children); NGOs and voluntary organisations also 5) As part of legislative support to women and children,
play a major role in providing institutional care to the 14 District Child Protection Officers are working
vulnerable population. under Integrated Child Protection Scheme (ICPS)
The programmes of the department seek to scheme for implementing Protection of Children
empower women and enable them to contribute as from Sexual Offences Act (2012).
equal partners in development. Within less than three 6) Karuthal, a survey based project to find children
years of its functioning the department has initiated in distress, and Kaval, a scheme to provide
several programmes to address issues with respect to psychological and social assistance to children, are
women and children as they emerged over the period, being run effectively. Classes are conducted for
especially focussed on prevention of gender-based concerned departments related to children such as
violence (GBV), child abuse, innovative programmes Police, Child Protection Units, ICDS functionaries,
for rehabilitation of survivors, gender awareness CWCs and Advocates - for giving awareness of the
creation, good parenting, care and assistance to very law against sexual abuse.
vulnerable women like street dwellers, widows, female- 7) A very innovative programme to check child abuse
headed families for meeting unexpected financial crises was Karuthal Sparsham-Nammal Kai Korkaam, to
(Athijeevika), vocational training of women residing in provide classes on responsible parenting.
welfare institutions to make them self-reliant. 8) District Collectors have been instructed to form
internal complaint committees in all institutions,
Mapping progress of WCD since 2016-17 and local complaint cells in the unorganised
1) A website www.wcd.kerala.gov.in has been launched sectors for ending sexual harassment at workplaces.
to create awareness among the general public about Workshops were conducted at four major centres
the schemes implemented by the Department of in the State to study the implementation of the
Women and Child Development and to monitor 2013 Prevention of Sexual Harassment Act.
the activities of the Department. 9) Women Protection Officers are working in all
2) A Kerala Women’s Portal was launched on districts for implementing Protection of Women
International Women’s Day in 2020, which deals from Domestic Violence Act 2005. Social Justice
with social, economic, cultural, historical and Department is implementing Kaithangu scheme
contemporary affairs of women. as a pilot project in 350 wards of 70 panchayats
3) Sadhairyam munnottu, a comprehensive programme selected from the 14 districts by forming a task
on creating a gender conscious society for the safety force to fight against violence. Sradha project is
of women has been revamped. A major initiative being implemented in collaboration with the Social
in the context of Navothana Keralam and an Welfare Board to do likewise. A campaign was
emphatic statement against blind beliefs regarding launched to ban dowry; goal is to eliminate dowry
menstruation as a polluting phenomenon, was a completely within five years and was launched on
programme inaugurated on December 10, 2018 social media targeting the youth.
(Human Rights Day) by the Chief Minister of 10) Sakhi One Stop Centres under WCD have been
Kerala, in the presence of Minister of Health, started in all districts for helping women who are
Social Justice and Women and Child Development the victims of violence in the family, public places,
on the theme “Women, Menstruation and and work places. 24*7 services are provided in
Women’s Rights”; to be continued as a longer term these One Stop Centres to the survivors
programme for sensitising people to menstruation 11) Aswasanidhi scheme is implemented for giving
 GENDER EMPOWERMENT | 297

immediate financial assistance for women and and to become a premier convergence point for
children who survived sexual or acid or other all gender related activities in the region. It is now
violence. poised to start functioning with the launch of the
12) To promote gender awareness in girls from International Women’s Trade Centre in early 2021
adolescence onwards, Women’s Development on its campus, together with a library and museum.
Corporation has already set up women cells in As can be seen from the above, the WCD has placed
70 colleges. About 15,000 students are currently substantial emphasis on policy and programmes that
covered under the scheme. address major gender concerns in Kerala, reducing
13) The 181 Women Helpline, a 24-hour centralised crimes against women, providing freedom in public
scheme for women security, has been implemented spaces for women and, protecting children through
since 2017 under the auspices of the Women novel schemes. Figure 20.2 shows that there was a
Development Corporation. So far, the helpline has decline in crimes against women in 2017 and 2018;
received over two lakh calls. Of those, 90,000 calls data for 2019 and 2020 are still to come.
were serviced. 60,000 cases were settled. Gender and Child Budgeting since 2017-18
14) The Women Development Corporation has set Gender Budget is not a separate Budget for women but
up 58 ‘She’ toilets in different parts of the State
is a methodology to assist Governments to integrate
to provide clean and safe toilet facilities to women
a gender perspective into the Budget, recognising the
travellers. A scheme has been envisaged for Fresh
economic significance of women’s unpaid household
Up Centres to provide clean toilet facilities and
and care work and the need for public investment in
breastfeeding during travel and first two centres
these activities to enable women to be an integral part
will be opened in Angamaly and Changanassery.
of the development process.
15) “Bodhyam” a comprehensive programme for
It seeks to break down the usual Budget through
gender sensitisation of police was launched in 2019
a well-established methodology, across schemes/
by the Women’s Development Corporation as a
programmes to make women visible in each sector,
pilot project for 135 police personnel, followed up
by another 484 numbers and in 2020, it is being recognising their contribution and emphasising the
continued online with 2320 police personnel, men need to consider their needs/interests in the overall
and women having undergone the training. determination of development policy. The main
16) An integrated skill development programme for 50 weakness of efforts to implement the Gender Budgeting
tribal families started in 2018 and 18 women have (GB) methodology on real Budgets in India, has been
formed a group for Tailoring, supported by WDC. its limited ability to estimate the flow of budgetary
17) Most recently, an advanced training programme resources to women due to non-availability of gender
for nurses was conducted to help find employment disaggregated data.
abroad, together with ODEPC and Centre for Kerala’s achievement in Gender Budgeting lies in
Management Development. Batch of 30 students its attempt to address these lacunae through a more
and 180 will be trained before end of 2020-21. pragmatic and doable approach to GB. Certain essential
18) In 2019, Women’s Commission conducted steps to initiate and sustain the process were laid out: (a)
185 seminars and legal workshops, 29 training First, the need for a strong Government commitment
programmes for members of Jagratha Samithis to GB, so it becomes an integral part of planning/
and 114 adalaths, and 29 pre-marital counselling budgeting. In the case of Kerala it was announced in
sessions. It responds strongly to all violations the Finance Minister’s speech in the first Budget of the
against women’s dignity, self- respect and safety. 11th and 13th Five-Year Plans; (b) Second, the need
Action is being taken for forming Jagratha Samithis to identify thrust areas for women’s development first,
under the leadership of Women’s Commi-ssion in which guides the process of formulation of schemes,
all panchayats; workshops were also conducted and then ensuring that funds are made available; (c)
focusing on the needs and objectives of Jagratha Third, creating awareness on the significance of gender
Samithies to the ICDS workers. across Departments, even those which are apparently
19) The Gender Park is an initiative under the Women “gender unrelated”. Hence the focus on 100 per cent
and Child Development Department. Recently women’s schemes in the 11th Plan (Part A of Gender
the UN Women has proposed a partnership with Budget) which could be easily identifiable in several
Gender Park to function as a South Asian hub Infrastructure Departments, like Power, Transport,
298 | KERALA DEVELOPMENT REPORT 2021

Figure 20.2 Total crimes against women in Kerala

Source: State Crime Records Bureau, Kerala
Ports, PWD, Civil Supplies, Excise, which have rarely schemes benefitting women, the allocations for women
come under the ambit of GB. (Kerala’s GB attempt in was 11.4 per cent that year (4.5 per cent in Part A and
Infrastructure sectors is given as a Box in the 11th Five- 6.9 per cent in Part B) which increased to 14.6 per
Year Plan of Government of India); (d) Fourth, larger cent in 2018-19 (5.7 in Part A and 8.9 per cent in Part
resources flows to composite schemes which benefit B) both in women specific schemes and in composite
both women and men, with a method of separating schemes, to 16.9 per cent in 2019-20 (6.2 per cent in
the allocations by gender; (e) Fifth, the need to provide Part A and 10.7 per cent in Part B) and to 18.4 per cent
explanatory notes at the end of Part B explaining in 2020-21(7.3 per cent in Part A and 11.1 per cent in
the rationale of taking those allocations for women Part B). The attempt in Kerala’s Gender Budgeting has
(Kerala was the first State to evolve a methodology for been to make women visible across sectors in the Plan.
disaggregating composite schemes (Subrat Das 2019). Despite the unprecedented floods/landslides
Hence in the 13th Plan, Kerala has been able to in August 2018, 2019 and pandemic in 2020, the
develop a doable framework for gender budgeting, percentage allocations for women in the Gender
the overall thrust of which is on making Planning Budgets of the last three years did not decline given
and Budgeting gender sensitive through (a) outlays the critical role women played in livelihood revival/
allocated for 90-100 per cent women specific schemes rebuilding Kerala programme. The Gender Budget in
(Part A of Gender Budget Statement); and (b) schemes 2020-21, like the last two years, focussed on women’s
in which women’s share is specified or identifiable based employment with a big thrust in particular on
on gender disaggregated beneficiary data, and is less entrepreneurship, which has seen rapid growth in recent
than the above (Part B). years but has not been systematically mapped. Startups,
The thrust areas identified as priorities were (a) and nano-micro enterprises under IT and Industries
skill development, employment generation, livelihood sector, the special livelihood development package of
security for women, in particular for vulnerable women. Kudumbashree, self-employment programme of Kerala
Since child care and lack of other basic amenities State Women’s Development Corporation, SHGs of
(accommodation, travel, safety/security) hold women other organisations, have all played a major role in
back from working outside the home, emphasis was this activity. Prominent among livelihood programmes
also put on enhancing the reach of creche-cum-day care also, is the large expansion envisaged in NREGA
centres, home-stays for elderly, hostels and means of employment to quickly restore livelihoods to women,
travel for women; and (b) Prevention of gender-based a substantial increase in Ayyankali urban employment
violence, redressal and rehabilitation in the context of scheme, and revival of livelihoods of women in the
continuing violence in the State (relating to targets 5.2, small/medium cashew factories.
5.4 and 5.5, 5a, 5b,5c of the SDGs). A large infrastructure project for women to be known
While the Budget in 2017-18 had recommended at as International Women’s Trade Centre (WTC) will be
least 10 per cent of total State Plan outlay to be spent on set up at the Kozhikode campus of the Gender Park,
 GENDER EMPOWERMENT | 299

which will be a platform for women to safely start and fundamental to many other SDG targets, Kerala is
expand enterprises, and market their products globally. listed as one of the top States in India.
Money has also been allocated for rehabilitation of Nonetheless, much remains to be done in terms
returnee migrants for sustainable livelihoods. of changing the unequal gender relations which still
Second is the emphasis on Navothanam Kerala characterises the work structure at home and outside.
(Kerala Renaissance) the new, major initiative of the Violence persists. However, the attempts in recent
Government of Kerala in the form of a massive campaign Covid-19 times, of women trying to break their shackles
for creating a gender conscious society, launched on a as expressed in the digital spheres and in changing modes
pan-Kerala scale with the Vanitha Mathil on January 1, of assembly that seem to bring new registers to the
2019. One new scheme in the 2019-20 Gender Budgt social and historical processes of collective-formation,
was the inclusion of a textbook module in schools on and generate new forays and modes for women to assert
the Constitution, learning about women’s and children’s themselves and exercise agency (see Meena Pillai op cit)
rights and historical struggles of women against has resulted in an empowerment not easy to capture in
obscurantist practices, called Naitikam, implemented quantitative terms. The evidence suggests that women
by SCERT. This is supported by other programmes on are gaining greater autonomy to assert themselves and
gender awareness mentioned in the section on WCDD - in that sense greater empowerment.
a major initiative this year titled “Year of Women Safety Our objective in the next 20 to 25 years is further
2020” to be implemented by the Police Department; improvements in the targets mentioned in Goal 5,
also a very well received and effective scheme of the especially under 5.2 (eliminate all forms of violence
Police department is self-defence training, based on against all women and girls in public and private
Krav Maga, (a self defence system developed for security spheres, including trafficking, sexual and other types
forces in Israel) started almost one and a half years ago of exploitation); 5.4 (recognise and value unpaid care
in which almost 15 lakh girls have been trained in and domestic work through the provision of public
schools, colleges, Kudumbashree units, offices, residents services, infrastructure and social protection policies
associations etc.; awareness campaign against illegal and the promotion of shared responsibility within the
migration by NORKA Department. Other novel household and the family), and 5.5 (Ensure women’s
schemes were to give girls and women greater access to full and effective participation and equal leadership at
public spaces, encouraging them in sports, swimming, all levels of decision making in political, economic and
rock climbing, (to be better prepared for disasters), art public life).
and culture. A major idea in the field of art and culture Policy towards Transgender Persons
is partial funding/support for two feature films to be Transgender persons face discrimination and are
made by women proposed by KSFDC. excluded in important ways from full participation in the
The third focus in the GBs is on our continuing political and socio-economic spheres. After the Supreme
attempt of providing an enabling environment for Court judgement of 2014, Kerala was the first State in
women to come out of their homes to work: enhanced India to declare a Transgender Persons’ Policy. It did so
allocations for anganvadis, creche-cum-day care centres, in 2015. The policy was preceded by a socio-economic
day care homes for the senior citizens, palliative care survey of the community conducted by the Social
and mobile medical units to provide care for them at Justice Department. The survey sought information on
home, and providing facilities to SHGs to take care of all aspects of their social and personal life. It reveals that
adult girls and boys with intellectual disabilities. much remains to be done for transgender persons to
Last but not the least is funding. With the decline achieve a life of well-being and dignity; widespread and
in allocations in almost all schemes for women at the intense conservatism denies equal status to the interests
national-level, the burden on the State is astounding. and demands of transgender persons.
Some Observations and Way Forward The policy of the Government of Kerala emphasises
It needs to be noted that Kerala is one of the top States the rights of transgender persons, including self-
in achieving gender equality. The NITI Aayog’s SDG identifying as man, a woman or transgender person
India Index 2019 places Kerala as one among the as Stated in the Judgement. The policy was launched
topmost States in its progress towards UN Sustainable at an international conference on Gender Equality
Development Goals, including eradication of poverty in November 2015. Twelve transgender leaders from
and inequality (NITI Aayog 2019). What is interesting inside and outside the State participated, affirming the
is that in SDG 5, which is on gender equality and so Government’s commitment to a gender-just society.
300 | KERALA DEVELOPMENT REPORT 2021

Based on the findings of the survey, the Policy and Labour Department to the right to equality of
provided a road map for ensuring certain basic rights transgender persons.
to transgender persons, namely, the right to equality, • An attempt was made in the 2018-19 Budget to
freedom of expression, right to dignity and life without mainstream them through integrating their needs
violence, right to employment and right to equal access to into education, and providing shelter homes with
education, training and health services. It recommended the help of the State Literacy Mission Authority
the establishment of a State-level Transgender Justice (Samanvaya scheme).
Board and District-level transgender persons Justice • In 2018-19, the transgender person Cell in the
Boards that can register transgender persons and issue Directorate was set up for design, coordination
identification cards. The Department of Social Justice and implementation of various activities for the
has established these Boards in 2016-17. transgender persons giving them a voice in their
own planning.
State Initiatives for Transgender Persons in the 13th
• Since then, all the schemes under SJD came under
Five-Year Plan
a comprehensive umbrella scheme- Mazhavillu.
In March to April 2017, a Government notification
Some other Departments like Health, Homeopathy,
sanctioned membership of a transgender person
Cooperation, Local Bodies, Kerala State Women’s
to the State Board (and later to the District-Level
Development Corporation, select Correctional
Committees).
Homes (a separate Prison block) also introduced
Kerala is one of the few States that has a separate
schemes for transgender persons. Increased emphasis
allocation for transgender persons in the Budget.
was placed on hastening the issuing of ID cards, and
In the revised budget of 2016-17, the Government
providing shelter homes.
introduced a monthly pension for transgender persons
• A transgender persons’ arts festival was organised;
above 60 years old. The Social Justice Department
Marriage assistance was provided to transgender
was able to provide scholarships to a few transgender
persons.
students, and it conducted district-level workshops for
• Transgender persons are included as a priority
assessing livelihood training and other matters relating
category in the LIFE Housing Mission project.
to mainstreaming of transgender persons. Right from
• The SCERT, under a scheme called Naitikam, to
the formulation of the first Gender and Child Budget
create awareness on Constitutional Rights among
in 2017-18, a separate allocation has been made for
school children, prepared posters to generate
transgender persons in the Gender Budget (Part A): Rs
awareness on transgenders in schools.
3 crore in the first year; Rs 4 crore in 2018-19; Rs 5 • In September 2020, under the Chief Minister’s
crore in 2019-20 and at the same-level, Rs 5 crore in Entrepreneurship Development Programme, the
2020-21 and 2021-22. first amount of Rs 75,000 was given to a transgender
Some of the major schemes for transgender persons person by the Finance Minister.
introduced were: • A landmark achievement in mid-2017 was a
• A Transgender persons’ helpline (24x7) and crisis three-year agreement between Kochi Metro and
management centre with the help of accredited Kudumbashree to run the metro service. Of the
NGOs working in the field. 618 staff recruited for the 16 metro stations and the
• Financial assistance for education (school drop Aluva depot, 23 were transgender persons. Of the
outs being high), vocational training and self- 23 individuals, only 14 of them stayed on. Others
employment; and financial support for writing went for pursuing post-graduation and for some
competitive exams. other jobs; the number is now 11.
• Sex Re-assignment Surgery (SRS) in Government • From 2017-18, some local governments have been
hospitals based on medical advice (amount for SRS allocating funds to meet felt needs of the transgender
surgery increased to Rs 2 lakh in 2019 and further persons, for training and support to skill development
to Rs 5 lakh by 2020). and self-employment schemes: Haritha Karmasena
• Sensitising the public, especially parents and family programmes and a Canteen event management
members, teaching and non-teaching staff and group. Beautician course is much coveted among
student community of educational institutions, transgender persons. In 2019-20 there was a large
officers of the Health Department, Local Self increase in the number of local bodies responding to
Government Department (LSGD), Education the needs of Transgender persons.
 GENDER EMPOWERMENT | 301

Covid-19 pandemic and impact on transgender treatment of the problem.

persons • In public spaces, like cinema halls or transportation
The transgender community whose livelihood is services, more visual representation of the
almost entirely dependent on daily wages and gig jobs, transgender persons should be given as part of the
including begging, and paid sex work, lost livelihood awareness programme.
opportunities because of the pandemic and consequent Health
lockdown which left them even more vulnerable, with • Training healthcare providers to understand
no regular income, no ways to find food and shelter, a the needs of transgender persons and respond
complete halt to community life and gatherings, and effectively.
a pause in health and follow-up treatment. The Social • Create outreach health services for transgender
Justice Department extended help in terms of food kits persons who are unable to leave their homes, due
and shelter; even those without documents to prove to discrimination or exclusion.
their identity were allotted food kits; psycho-social
Education
counselling was also provided.
• School curriculum should be mandated to include
Looking ahead sex education.
It can be seen from the above that after the Transgender • Vocational training and personality development
2015 Policy came into force and the Transgender should be given to the identified transgender
Board at the State and Committees at district-level children from schools.
were set up, the current Government has implemented • Provide guidance and training for teachers and
a number of innovative programmes recognising basic counsellors on how to deal sensitively with students
rights of transgender persons, addressing issues of who are questioning their sexual orientation and/
stigmatisation, discrimination, right to equality, right or gender identity.
to a life of dignity without violence, right to health and • Adopt a zero-tolerance policy towards
education, training, employment and shelter. These homophobic, biphobic and transphobic bullying.
rights-based considerations will continue to underlie • Make sure that all teaching curricula are
the Government’s policy in this sphere. transgender persons-inclusive and profile positive
A major problem is the absence of a sound estimate role models.
on number of Transgender persons in the State, a
Employment
lacunae very much recognised by the Government. The
• We must reach a better understanding of how
figure of 25,000 persons estimated by the Transgender
transgender persons are discriminated against
Policy (2015) has to be revisited. Substantial efforts have
economically, ensure private sector development
been made by the Cell and the Directorate to draw out
projects are designed to address their economic
Transgender persons for access to their entitlements.
needs, and support transgender persons to set up
Way forward their own businesses.
The rights of the transgender persons • Gender Park (under WCD), with its emphasis on
• Civil rights of the transgender persons must be addressing the issues of non-heterosexual identities,
emphasised. They should not be devoid of basic could play a major role in supporting research and
rights like the right to self-identification; right training regarding transgender persons.
to acquiring a ration card, passport, or obtaining • Reservation in teaching jobs should be given in
property because of their gender. all aided and unaided schools to have an inclusive
Social awareness. approach in the field of education.
• Another approach to upliftment of TGs is by Shelter
providing benefits to the family. The anganwadis • Support and train local government and housing
can identify mothers with transgender children. associations to take account of the specific needs
• Workshops for sensitisation purposes should be of young transgender persons.
designed creatively not only in the educational • Provide specialist services, such as safe houses,
institutions but also in the police stations. for transgender persons at risk of homelessness,
• The content in the media should be more gender- particularly young people and the elderly.
sensitive. The Press Council of India should design • Provide affordable and non-discriminatory
guidelines to certify the sensitive and respectful housing options for transgender persons.
302 | KERALA DEVELOPMENT REPORT 2021

Chapter 21
Overcoming Fiscal Constraints to Growth
Even a cursory glance at the State List in the Trends in Major Fiscal Indicators
Seventh Schedule of the Constitution shows that, This section presents the trends in various fiscal
in the allocation of duties between the Centre and indicators of State finances from 2010-11 to 2020-21.
the States, fundamental tasks of enhancing human
development, income growth, livelihoods, and Trends in receipts
protecting and sustaining the environment are Revenue and capital are the two streams of receipts
entrusted to the States. However, although these of the State Governments and the Union. Revenue
major tasks of nation-building are the duty of the receipts of the State consists of own tax revenues,
States, the resources to finance them are substantially non-tax revenues, State’s share of Union taxes, and
controlled by the Centre . . . The present situation is Grants-in-aid from the Government of India. Capital
not because of the action or inaction of the States but receipts comprise mainly debt receipts and also include
is directly the consequence of Central Government miscellaneous capital receipts such as proceeds from
policy . . . There is thus a great asymmetry in India’s
disinvestments, and recoveries of loans and advances.
federal system. The Centre’s capacity to mobilise
resources is far greater than that of the States, but The trend in receipts from 2010-11 to 2020-21(RE) are
the latter are required to undertake development shown in Table 21.1.
expenditures that far exceed their revenue generating Total revenue receipts of Kerala as percentage of
capabilities. GSDP have not witnessed any upward trend except
Chief Minister Pinarayi Vijayan (2018) for a brief period between 2016 and 2018. Details of
The focus of this chapter is on the fiscal constraints revenue receipts in the State from 2010-11 to 2020-21
to economic growth in Kerala. In this context, this are shown in Table 21.2.
section covers the following areas. An analysis of the three major components of State
1. Trend in various fiscal indicators of Kerala economy revenues, that is, State’s own tax revenue, State non-tax
from 2010-11 to 2020-21. revenue, and Central transfers shows that the annual
2. Major fiscal constraints faced by the State. State’s own tax revenue growth declined from 23 per
3. Policy initiatives to overcome the fiscal constraints cent in 2010-11 to (-)10 per cent in 2020-21 (RE).
in the State. The growth rate achieved in 2010-11 and 2011-12
Table 21.1 Trend in total receipts, Kerala, 2010-11 to 2020-21 in Rs crore
Year Revenue Capital Total Growth rate of GSDP Receipts-
receipts receipts receipts total receipts (at current GSDP ratio
(in %) prices) (in %)
2010-11 30,991 7807 38,798 14 3,24,513 12
2011-12 38,010 12,284 50,294 30 3,64,048 14
2012-13 44,137 15,685 59,822 19 4,12,313 15
2013-14 49,177 17,050 66,227 11 4,65,041 14
2014-15 57,950 18,719 76,669 16 5,12,564 15
2015-16 69,033 17,965 86,998 13 5,61,994 15
2016-17 75,612 26,763 1,02,374 18 6,34,886 16
2017-18 83,020 27,221 1,10,241 8 7,01,588 16
2018-19 92,855 27,215 1,20,070 9 7,90,302 15
2019-20 90,225 24,160 1,14,385 -5 8,54,689 13
2020-21 (RE) 93,115 35,268 1,28,383 12 8,22,023 16
Note: RE is revised estimate.
Source: Budget in Brief, 2021-22, Government of Kerala.
 FISCAL POLICY | 303

Table 21.2 Trend in revenue receipts, Kerala, 2010-11 to 2020-21 in Rs crore

Year Own Own Central Total Growth in GSDP Revenue
tax non- tax transfers receipts own tax (at receipts-
revenue revenue revenue current GSDP ratio
(in per cent) prices) (in %)
2010-11 21,722 1931 7338 30,991 23 3,24,513 10
2011-12 25,719 2592 9700 38,011 18 3,64,048 10
2012-13 30,077 4198 9862 44,137 17 4,12,313 11
2013-14 31,995 5575 11,607 49,177 6 4,65,041 11
2014-15 35,233 7284 15,434 57,951 10 5,12,564 11
2015-16 38,995 8425 21,612 69,033 11 5,61,994 12
2016-17 42,176 9700 23,735 75,612 8 6,34,886 12
2017-18 46,460 11,200 25,361 83,020 10 7,01,588 12
2018-19 50,644 11,783 30,427 92,855 9 7,90,302 12
2019-20 50,323 12,265 27,636 90,225 -1 8,54,689 11
2020-21 (RE) 45,272 9121 38,722 93,115 -10 8,22,023 11
Note: RE is revised estimate.
Source: Budget in Brief, 2021-22, Government of Kerala.

could not be continued. There was a decline in growth on human consumption, stamps and registration fees,
rate in 2013-14 and that has continued over the years State excise duties, motor vehicle tax and land revenue.
except for few years where growth rate touched 10 per (ii) State’s Own Non-Tax Revenue. The major sources
cent. It needs to be taken note that the efforts taken of non-tax revenue are from general services, economic
by the State Government to raise the growth rate of services and social services, interest receipts, dividends
own tax revenues since 2016-17 has not met with and profits. Net receipts under State lotteries are
success. This was because of reasons which were beyond the major source of non-tax revenue of the State. It
the control of the State Government. Factors such as constitutes around 75 per cent of total non-tax revenue.
the demonetisation of Rs 500 and Rs 1000 notes in Other main sources of State's own non-tax revenue are
2016-17, floods in 2018 and 2019, implementation
sale proceeds of forest produces and receipts in the form
issues in GST and unprecedented economic downturn
of fees and fines from various social developmental
following the Covid-19 pandemic affected the revenue
services. Details of non-tax revenue in the State from
from own tax sources.
2010-11 to 2020-21 are shown in Table 21.3.
As regards the growth rate of revenue receipts,
including Central transfers, there has been high growth The buoyancy in the growth of State’s own non-tax
in 2014-15 and 2015-16. In 2014-15, the growth in revenue between 2011-15 was because of the increased
revenue receipts was mainly because of the rise in share collection from lotteries. However, after 2018, the sale
of Central grants caused by a change in procedure of of lotteries is stagnating. Regarding non-tax revenue
routing Central share in centrally sponsored schemes mobilisation, the major concerns facing Kerala are the
(CSS) through the State Budgets instead of directly small contribution by way of dividends and profits
to implementing agencies. Similarly, in 2015-16, the from State public sector enterprises and the fact that the
growth of 19 per cent in total receipts and the bulk of economic and social services are provided free
marginal increase in the revenue-GSDP ratio was to the people. The Government has taken a decision to
because of the initial transfers from the 14th Finance increase non-tax revenues from services at 5 per cent
Commission. per annum in order to mobilise resources from non-tax
(i) State’s Own Tax Revenue. The main sources of revenues.
State’s own tax revenue (SOTR) are State goods and (iii) Central resource transfers. The major components
services tax, sales tax on petroleum and alcoholic liquor of Central devolution are share of taxes and grants as
304 | KERALA DEVELOPMENT REPORT 2021

80.00%

70.00%

Own Tax
Percentage of Revenue Receipts

60.00%
Revenue-Total
Receipts
50.00%

40.00%
Own Non Tax
Revenue-Total
30.00% Receipts

20.00%
Central
Transfers-
10.00%
Total Receipts

0.00%

Figure 21.1 Proportion of components of revenue receipts to total receipts, Kerala, 2010-11 to
2020-21 in per cent
Note: RE is revised estimate
Source: Budget in Brief, 2021-22, Government of Kerala
recommended by the Finance Commissions (FC) and Table 21.3 Trends in non-tax revenue, Kerala, 2010-
grants disbursed by the Centre. Resource transfers from 11 to 2020-21 in Rupees crore
Centre and its trends are shown in Table 21.4 and 21.5.
The share of Central taxes and duties with grant-in- Year Non-tax Growth rate
aid and other receipt from Centre shows a fluctuating revenue (in %)
trend. Major reasons for the fluctuations in Central 2010-11 1931 4
transfers are as follows. 2011-12 2592 34
1. Changes in funding pattern of centrally sponsored
2012-13 4198 62
schemes since 2015-16. In schemes where earlier 25
per cent of cost was met by State, now 40 per cent of 2013-14 5575 33
the cost is borne by the State. 2014-15 7284 31
2. The spikes in 2010-11 and 2015-16 are attributed to 2015-16 8425 16
the recommendations of the 13th and 14th Finance
Commissions. The 13th Finance Commission 2016-17 9700 15
increased the share by 1.5 per cent points to 32 per 2017-18 11200 15
cent of the divisible tax pool. It also started direct 2018-19 11783 5
transfer of grants to local bodies.
2019-20 12265 0
3. The 14th Finance Commission increased the
devolution of taxes from 32 per cent to 42 per cent 2020-21
9121 0
of the divisible tax pool. The State’s share in the (RE)
14th Finance Commission increased from 2.34 per Note: RE is revised estimate
cent to 2.5 per cent in the horizontal devolution of Source: Budget in Brief, 2021-22, Government of Kerala
 FISCAL POLICY | 305

Table 21.4 Resource transfers from Centre to Kerala, 2010-11 to 2020-21 in Rs crore
Year Share in Plan Grants from Non-Plan Grant-in-aid and Total
Central Grants Finance Grants other receipts Transfers
Taxes and Commission other than from Centre (1+5)
Duties FC (2+3+4)
  1 2 3 4 5 6
2010-11 5142 1698 434 64 2197 7338
2011-12 5990 2276 1174 259 3709 9700
2012-13 6841 2364 601 57 3022 9863
2013-14 7469 2459 1568 111 4138 11,607
2014-15 7926 5524 1574 410 7508 15,434
2015-16 12,691 3744 5171 6 8921 21,612
2016-17 15,225 3260 4955 296 8510 23,735
2017-18 16,833 3409 3182 1937 8528 25,361
2018-19 19,038 3954 1646 5789 11,389 30,427
2019-20 16,401 3317 2343 5575 11,235 27,636
2020-21 (RE) 9844 3400 18,049 7429 28,878 38,722
Note: RE is revised estimate.
Source: Budget in Brief, 2021-22, Government of Kerala.
Table 21.5 Trend in resource transfers from Centre to Kerala, 2010-11 to 2020-21 in Rs crore and in per cent
Year Share in Growth rate Grant-in-aid and Growth Total Growth
Central taxes (in %) other receipts from rate transfers rate
and duties Centre (in %) (in %)
2010-11 5142 17 2197 -2 7338 11
2011-12 5990 17 3709 69 9700 32
2012-13 6841 14 3022 -19 9862 2
2013-14 7469 9 4138 37 11,607 18
2014-15 7926 6 7508 81 15,434 33
2015-16 12,691 60 8921 19 21,612 40
2016-17 15,225 20 8510 -5 23,735 10
2017-18 16,833 11 8528 0 25,361 7
2018-19 19,038 13 11,389 34 30,427 20
2019-20 16,401 -14 11,235 -1 27,636 -9
2020-21 (RE) 9844 -40 28,878 157 38,722 40
Note: RE is revised estimate.
Source: Budget in Brief, 2021-22, Government of Kerala.

the tax pool. However, the share of FC transfers per cent. This clearly indicates that the degree of
in total Central transfers to the States has shown progressivity in Union transfers have come down.
a declining trend during the six year period 2015- Further, the share of cess and surcharges as a
16 to 2020-21(Table 21.6). Except 2020-21, the percentage of tax revenues of Central Government
remaining five years were within the award period has increased since 2016-17 (Table 21.7). Cess and
of the 14th FC. The 15th Finance Commission has surcharge do not form part of the tax devolution to
decreased the State’s share in divisible pool to 1.925 States, thus nullifying the positive impact created by
306 | KERALA DEVELOPMENT REPORT 2021

14th Finance Commission’s allocation of 42 per cent Table 21.8.

to the States. Despite an increasing tendency in total debt-
Table 21.6 Share of Finance Commission transfers GSDP ratio during 2010-11 to 2015-16, Kerala has
in total Central transfers to States, 2015-16 to 2020- successfully contained the growth in debt-level through
21 in per cent prudent debt management policies. Studies by IIM
Kozhikode and Centre for Development Studies have
Year Share of FC transfers in total maintained that the debt-levels of Kerala are sustainable
Union transfers (in per cent) with the real GSDP growth hovering well above the real
2015-16 72.3 rate of interest. This is mainly due to two reasons (i) the
2016-17 73.1 composition of borrowings and liabilities has shifted
markedly towards market borrowings, which has a
2017-18 68.8 lower interest burden and (ii) the share of Central loans
2018-19 70.5 and that from small savings and provident funds have
2019-20 (RE) 62.5 come down. The change in composition has helped
in reducing the burden of interest payments and is a
2020-21 (BE) 64.6
movement towards fiscal consolidation.
Note: RE is revised estimate, BE is budget estimate
Source: 15th Finance Commission Report Trends in Government Expenditure
The total revenue expenditure comprises of
Table 21.7 Cess and Surcharges as percentage of developmental expenditure and non-developmental
Gross Tax Revenue of Union Government, 2011-12 to expenditure. Development expenditure indicates
2020-21 in per cent expenditure on social services and economic services.
Year Surcharge and Cess as per cent Expenditure on development fund and a portion of
of GTR maintenance fund devolved to local governments are
2011-12 10.4 also taken as part of development expenditure. Non-
developmental expenditure is expenditure on general
2012-13 11.7
services. Table 21.9 and Figure 21.2 shows the trend
2013-14 12.4 of developmental expenditure and non-developmental
2014-15 13.5 expenditure from 2010-11 to 2020-21 (RE).
2015-16 12.2 It is observed that non-developmental expenditure,
represented mainly by committed expenditures, namely,
2016-17 13.5 pensions, interest payments, subsidies and salaries, have
2017-18 13.9 (10.6) a higher proportion in revenue expenditure than the
2018-19 19.9 (15.6) share of developmental expenditure. The share of non-
development expenditures has risen from 45.42 per
2019-20 (RE) 20.2 (15.7)
cent of revenue expenditure in 2010-11 to 54.59 per
2020-21 (BE) 19.9(15.3) cent in 2019-20. This indicates a deep-rooted fiscal
Note: The figures in parentheses is excluding GST constraint in our State finances.
compensation cess : RE is revised estimate, BE is budget The increased devolution to LSGs has helped
estimate maintain the consistency in development expenditure
Source: 15th Finance Commission Report
over the last decade. It is to be noted that substantial
4. Delay in receipt of GST compensation from Centre part of the grants-in-aid to local governments is utilised
has substantially affected the revenue receipts of the for development expenditure. Thus, the budgetary
State. classification, in fact, underestimates the share of
Capital Receipts of the State are mainly debt development expenditure to the extent that it is spent
receipts. During the last ten years, the composition of from such grants-in-aid.
debt in Kerala has shifted from high cost to low cost Capital expenditure comprises of capital outlay and
debt because of rise in share of market borrowings in loans and advances. Capital outlay is the direct capital
total debt. The annual growth rate of debt decreased to expenditure on general, social and economic services
the level of 10 per cent in 2019-20 from 18 per cent in by the State. The trend in capital expenditure as a
2016-17. Total outstanding debt of Kerala is given in percentage of GSDP is shown in Table 21.10.
 FISCAL POLICY | 307

Table 21.8 Total outstanding debt in Kerala, 2010-11 to 2020-21 in Rs crore

Year Total debt Growth rate (%) Total debt as % of GSDP GSDP at current prices
2010-11 75,055 13 23 3,24,513
2011-12 82,486 10 23 3,64,048
2012-13 1,03,561 26 25 4,12,313
2013-14 1,19,009 15 26 4,65,041
2014-15 1,35,440 14 26 5,12,564
2015-16 1,57,370 16 28 5,61,994
2016-17 1,86,454 18 29 6,34,886
2017-18 2,10,762 13 30 7,01,588
2018-19 2,35,631 12 30 7,90,302
2019-20 2,60,311 10 30 8,54,689
2020-21 (RE) 2,96,818 14 36 8,22,023
Note: RE is revised estimate.
Source: Budget in Brief, 2021-22, Government of Kerala.

Table 21.9 Trend in revenue expenditure, Kerala, 2010-11 to 2020-21 in Rs crore

Year Development Growth Non- development Growth Total Growth
expenditure rate (in %) expenditure rate (in %) rate (in %)
2010-11 18,919 12 15,746 11 34,665 11
2011-12 25,070 33 20,975 33 46,045 33
2012-13 29,889 19 23,600 13 53,489 16
2013-14 32,921 10 30,197 28 63,118 18
2014-15 39,182 19 32,564 8 71,746 14
2015-16 41,763 7 36,927 13 78,689 10
2016-17 48,603 16 42,494 15 91,096 16
2017-18 52,980 9 46,969 11 99,948 10
2018-19 56,788 7 53,528 14 1,10,316 10
2019-20 47,550 -16 57,170 7 1,04,720 -5
2020-21(RE) 59,990 26 57,331 0 1,17,322 12
Note: RE is revised estimate.
Source: Budget in Brief, 2021-22, Government of Kerala.

The capital expenditure as percentage of GSDP Fund Board (KIIFB). The budgetary estimates of
was 1.88 per cent in 2010-11 and 1.35 per cent in capital expenditure are not an accurate estimate of
2020-21(RE). It indicates a fiscal challenge for Kerala. actual fiscal allocations for asset creation within the
The share of capital expenditure and capital outlay in Kerala economy.
Kerala’s total expenditure has witnessed a fluctuating Deficit Indicators
trend during the last decade. As percentage of GSDP, All the major deficit indicators including revenue deficit
capital outlay has decreased from 1.04 per cent in and fiscal deficit have shown slight changes over the last
2010-11 to 0.99 per cent in 2019-20 (Table 21.11). decade. Major deficit indicators from 2010-11 to 2020-
However, it needs to be understood that the bulk of 21 (RE) is shown in Table 21.12 and in Figure 21.3.
the capital expenditure over the last few years have been Fiscal deficit as per cent of GSDP increased
financed through Kerala Infrastructure Investment from 2.38 per cent in 2010-11 to 4.17 per cent in
308 | KERALA DEVELOPMENT REPORT 2021

60.00%
Percentage of Revenue

50.00%
Expenditure

40.00%

30.00%

20.00%
Development
10.00% Expenditure

0.00% Non-
Development
Expenditure

Figure 21.2 Share of developmental and non-developmental expenditure in total expenditure, Kerala, 2010-11
to 2020-21 in per cent
Note: RE is revised estimate
Source: Budget in Brief, 2021-22, Government of Kerala

Table 21.10 Trend in capital expenditure, Kerala, 2010-11 to 2020-21 in Rs crore

Year Capital Growth GSDP Capital Total Capital
expenditure rate (current expenditure expenditure expenditure as
(in %) prices) as per cent proportion to
of GSDP total expenditure
2010-11 6100 -23.74 3,24,513 1.88 40,765 14.96
2011-12 7745 26.95 3,64,048 2.13 53,789 14.40
2012-13 8544 10.32 4,12,313 2.07 62,032 13.77
2013-14 9003 5.38 4,65,041 1.94 72,122 12.48
2014-15 10,840 20.41 5,12,564 2.11 82,587 13.13
2015-16 14,403 32.86 5,61,994 2.56 93,093 15.47
2016-17 11,286 -21.64 63,4,886 1.78 1,02,383 11.02
2017-18 10,289 -8.83 7,01,588 1.47 1,10,238 9.33
2018-19 9753 -5.21 7,90,302 1.23 1,20,070 8.12
2019-20 9665 -0.91 8,54,689 1.13 1,14,385 8.45
2020-21 (RE) 11,061 14.44 8,22,023 1.35 1,28,383 8.62
Note: RE is revised estimate
Source: Budget in Brief, 2021-22, Government of Kerala

2016-17. The prudent fiscal consolidation policies by Plan Outlay and Expenditure
Government of Kerala even in the midst of consecutive Consequent to the inception of National Institution
floods and policy shocks such as demonetisation and for Transforming India (NITI Aayog) at the Centre,
GST has resulted in the fiscal deficit reducing to below Government of India did away with the Five-Year
3 per cent of GSDP in 2019-20. It is noteworthy that Plans. The Government of Kerala, however, resolved
the primary deficit which is a true indicator of current to proceed with the Five-Year Plan and formulated
borrowings has shown a declining trend since 2016-17 the 13th Five-Year Plan (2017-22). Plan Outlay and
and is below 1 per cent in 2019-20. Expenditure from 2010-11 onwards is shown below in
 FISCAL POLICY | 309

Table 21.11 Trends in the capital outlay, Kerala, 2010-11 to 2020-21 in Rs crore
Year Capital Growth GSDP Capital Total Capital
Expenditure Rate (current Expenditure Expenditure Expenditure as
(in %) prices) as per cent proportion to
of GSDP total expenditure
2010-11 6100 -23.74 3,24,513 1.88 40,765 14.96
2011-12 7745 26.95 3,64,048 2.13 53,789 14.40
2012-13 8544 10.32 4,12,313 2.07 62,032 13.77
2013-14 9003 5.38 4,65,041 1.94 72,122 12.48
2014-15 10,840 20.41 5,12,564 2.11 82,587 13.13
2015-16 14,403 32.86 5,61,994 2.56 93,093 15.47
2016-17 11,286 -21.64 6,34,886 1.78 1,02,383 11.02
2017-18 10,289 -8.83 7,01,588 1.47 1,10,238 9.33
2018-19 9753 -5.21 7,90,302 1.23 1,20,070 8.12
2019-20 9665 -0.91 8,54,689 1.13 1,14,385 8.45
2020-21 (RE) 11,061 14.44 8,22,023 1.35 1,28,383 8.62
Note: RE is revised estimate
Source: Budget in Brief, 2021-22, Government of Kerala

Table 21.12 Trends in major deficit indicators, Kerala, 2010-11 to 2020-21 in Rs crore
Year Revenue Deficit Fiscal Deficit Primary Deficit GSDP
Amount % to Amount % to Amount % to (at current
GSDP GSDP GSDP prices)
2010-11 3674 1.13 7730 2.38 2041 0.63 3,24,513
2011-12 8034 2.21 12,815 3.52 6521 1.79 3,64,048
2012-13 9351 2.27 15,002 3.64 7798 1.89 4,12,313
2013-14 11,309 2.43 16,944 3.64 8679 1.87 4,65,041
2014-15 13,796 2.69 18,642 3.64 8872 1.73 5,12,564
2015-16 9657 1.72 17,818 3.17 6708 1.19 5,61,994
2016-17 15,485 2.44 26,448 4.17 14,332 2.26 6,34,886
2017-18 16,928 2.41 26,837 3.83 11,718 1.67 7,01,588
2018-19 17,462 2.21 26,958 3.41 10,210 1.29 7,90,302
2019-20 14,495 1.70 23,837 2.79 4623 0.54 8,54,689
2020-21 (RE) 24,206 2.94 34,950 4.25 14,663 1.78 8,22,023
Note: RE is revised estimate
Source: Budget in Brief, 2021-22, Government of Kerala

Table 21.13. economy through productive investments in social

In spite of the fiscal shocks faced by the State over infrastructure such as health, education and physical
the last few years, the State Plan outlay has registered infrastructures such as roads, water and sanitation.
a double-digit growth except for the years 2015- In times of crisis, the Plans were reoriented to create
16, 2019-20, and 2020-21.The growth of State Plan livelihoods for people, invest in infrastructure projects,
outlay has been instrumental in rebuilding the Kerala and in rebuilding and reviving the economy. The
310 | KERALA DEVELOPMENT REPORT 2021

4.50%
4.00%
3.50%
3.00%
2.50% Revenue Deficit
Fiscal Deficit
2.00%
Primary Deficit
1.50%
1.00%
0.50%
0.00%
1 2 3 4 5 6 7 8 9 10 11

Figure 21.3 Trends in major deficit indicators, Kerala, 2010-11 to 2020-21 in per cent
Source: Budget in Brief, 2021-22, Government of Kerala
Table 21.13 Trends in Plan outlay and expenditure, Kerala, 2010-11 to 2020-21 in Rs crore
Year State Plan Outlay Growth Rate Expenditure Expenditure as
percentage of Outlay
2010-11 10,025 12 10,025 100
2011-12 12,010 20 11,759 98
2012-13 14,010 17 14,737 105
2013-14 17,000 21 14,901 88
2014-15 20,000 18 15,567 78
2015-16 20,000 0 21,311 107
2016-17 24,000 20 24,471 102
2017-18 26,500 10 29,897 113
2018-19 29,150 10 26,047 89
2019-20 30,610 5 24,452 80
2020-21 27,610 -10 18,190 66
Note: Expenditure for 2020-21is up to February 28, 2021 and is obtained from Planspace
Source: Economic Review 2020
consistently increasing devolution to local bodies and e-assessment has improved the tax base. Kerala
against the background of constrained fiscal space has imposed a cess of one per cent on GST for a specific
ensured the smooth functioning of the fiscal federalism period (which is permissible under Article 279A(4)
architecture within the State. (f ) of the Constitution) for additional resource
Efforts for Fiscal Consolidation mobilisation. Kerala become the first State to levy
The State Government has taken consistent efforts for calamity cess. Kerala Flood Cess is applicable from
fiscal consolidation by trying to improve tax collection the August 1, 2019 onwards for a period of two years.
and rationalising expenditure. 2. Revival of PSUs on a profitable path which has
enhanced the revenue receipts of the State. Example
Improvements in tax collection
the Kerala Minerals and Metals Limited clocked a
1. Improvements in tax administration and up net profit of Rs 163.29 crores in 2019 on a turnover
gradation of technology such as e-filing, e-auditing of Rs 829.89 crores when compared to net profit of
 FISCAL POLICY | 311

Rs 3.24 crores on a turnover of Rs 653.91 crores in GST compensation, Kerala is now pressurised to
2015-16 borrow from RBI or open market by Centre to
Rationalisation of expenditure
bridge the GST revenue shortfall. According to
1. The grants-in-aid to local governments are now based the 15th Finance Commission, the estimated GST
on bills system instead of crediting the amounts Compensation for the period from 2021-26 is
which has improved the economy of expenditures. around Rs 22,503 crores (Table 21.14).
2. Quality of expenditure is evident from the following Table 21.14 Estimated GST compensation to Kerala,
achievements. Kerala topped the SDG India index 2021-26 in Rs crore
consecutively in 2018 and 2019. In 2018, Kerala 2021-22 2022-23 2023-24 2024-25 2025-26
ranked first in SDGs relating to health, education,
3408 3797 4157 4631 6510
and gender equality. In 2019, Kerala was one of the
Source: 15th Finance Commission Report
top performers in the SDG goal relating to Industry,
Innovation and Infrastructure. In the Performance (iii) Late implementation of e-way bill has impacted the
of States in Health Outcomes Index released by GST revenue collection of all States.
NITI Aayog in June 2019, Kerala ranked at the top (iv) Equal apportionment of GST rates between the
in terms of overall performance. Kerala topped the Union and States has led to a substantial erosion of
School Education Quality Index (SEQI) of Niti tax base of States.
Aayog. 2. About 30 per cent of the total revenue of the State
3. As part of fiscal consolidation and expenditure Government comes from loans or grants from the
rationalisation, the Government has done away Central Government. This has been affected by the
with the practice of use of Treasury Savings Bank changes in funding pattern of centrally sponsored
(TSB) accounts by departments to draw funds and schemes since 2015-16. In schemes where 25 per
spend them later or in other words prevent them cent of cost was met by State earlier, now 40 per
from lapsing at the end of the financial year. This cent of the cost is borne by the State.
has helped in expenditure rationalisation and 3. Resource mobilisation constraints are further
maintaining deficit targets. aggravated as the State is bound by the Fiscal
4. The Government has taken steps to implement the Responsibility Act (FRA) under which it cannot
recommendations of expert committees appointed borrow more than 3 per cent of its GSDP. In the
to rationalise public expenditures. These committees wake of Covid-19 crisis, Centre has raised the net
were appointed in the wake of Covid-19 pandemic. borrowing limit for State Governments from 3 per
cent of the GSDP to 5 per cent to make available an
Issues Affecting Fiscal Space of State
additional Rs 18, 000 crores for borrowings. While
Centre-State relations in fiscal sphere 0.5 per cent of the extra borrowing window will be
1. The implementation of GST as per the provisions of available to all States unconditionally, 1per cent will
the 101st Constitutional Amendment Act since July be made available in four equal tranches with each
1, 2017 has limited the fiscal space of State to raise to clearly “specified, measurable and feasible reform
resources through taxes. actions.” The balance 0.5 per cent can be accessed if
(i) The current GST slabs are 0 per cent, 5 per cent, milestones are completely achieved in at least three
12 per cent, 18 per cent and 28 per cent. The out of four reform areas. The four reforms areas are
standard tax rate on majority of goods which was universalisation of “One Nation One Ration Card,”
14.5 per cent under VAT regime has come down to ease of doing business, power distribution, and
9 per cent (SGST component of 18 per cent GST). augmentation of urban local body revenues.
This has led to fall in tax revenue as 75 per cent of In the Union Budget 2021-22, States have been
commodities in the pre-GST era were at 14.5 per granted additional borrowing room of up to 4 per cent
cent under VAT. of Gross State Domestic Product (GSDP) for 2021-
(ii) Delay in receipt of GST compensation from the 22, with an additional 0.5 per cent limit for those
Central Government. In the wake of Covid-19 undertaking critical power sector reforms. States are
pandemic, Centre has described the revenue expected to reach a fiscal deficit of 3 per cent of GSDP
shortfall as an “act of god” and is shying away from by 2023-24 as recommended by the 15th Finance
its responsibility of augmenting State finances. Commission which will constrain the fiscal space
Despite being burdened with huge arrears of available to the State.
312 | KERALA DEVELOPMENT REPORT 2021

Impact of Covid-19 pandemic and lockdown silver lining amidst the fiscal deficit conundrum is
The quick assessment report by the State Planning the consistent increase in capital outlay as per cent of
Board on the impact of Covid-19 and lockdown on capital expenditure from 55.14 per cent in 2010-11 to
Kerala economy had predicted the first quarter Gross 84.90 per cent in 2020- 21 (RE).
Value Added (GVA) of 2020-21 to shrink to around 26 Fifteenth Finance Commission
per cent of 2019-20 first quarter GVA. The loss in GVA Finance Commission under Article 280 is a significant
in the second quarter of 2020-21 compared to the same constitutional body which helps in rectifying the fiscal
quarter of the previous year is estimated to be 18.5 per imbalances within the Indian quasi federal structure.
cent. The economic crisis associated with the Covid-19 However, even in the recommendations of the 15th
pandemic is unprecedented. Finance Commission, the worsening vertical fiscal
The Government took measures to channelise the imbalances remain unaddressed. Table 21.15 shows the
scarce resources at its disposal to address the most criteria used by the 13th, 14th, and 15th Commissions
important needs of the economy through the Rs 20,000 to determine each State’s share in Central taxes, and the
crore economic package. This has severely curtailed weight assigned to each criterion.
the public finances of the State owing to a surge in
Table 21.15 Criteria for horizontal devolution of tax
revenue expenditure necessitated by the pandemic. The
resources by Centre to States in the 13th, 14th, and
Gulati Institute of Finance and Taxation (GIFT) report
15th Finance Commission Reports in per cent
“Economic and Fiscal Shock of Covid-19 on Kerala”
predicted that the shortfall in revenue receipts of the Criteria 13th 14th 15th
State in 2020-21 is likely to be around Rs 33,456 crores. FC FC FC
Such a steep fall in the revenue receipts will adversely 2010- 2015- 2020-
affect the plan and non-plan expenditures of the State. 15 20 26
Issues in generation of States’ own revenue Population (1971) 25 17.5 -
The decline in the growth of major own tax revenue Population (2011) - 10 15
sources namely sales tax and VAT, State excise duties
Income distance 47.5 50 45
and motor vehicle tax, stamps and registration fees
and motor vehicle tax over the years is a major fiscal Area 10 15 15
challenge for Kerala. The own revenue mobilisation Forest cover - 7.5 -
has remained below expected-levels in the State. Forest and ecology - - 10
Regarding non-tax revenue mobilisation, the major Demographic
concerns facing Kerala are negligible contribution by - 12.5
performance
way of dividends and profits from State public sector
Tax and fiscal effort - - 2.5
enterprises and consistently falling contribution from
economic and social services. Fiscal discipline 17.5 - -
By 2024-25, Kerala is expected to face three Total 100 100 100
important issues: The tapering of revenue grants to Source: 15th Finance Commission Report
zero, expiration of GST Compensation Cess and The share of States in the Centre’s taxes as per the
adherence to the fiscal deficit target of 3 per cent of vertical devolution recommended by 13th Finance
GSDP. Hence, the State cannot afford any slippage in Commission was 32 per cent for the five year period
own-revenue mobilisation. Efforts to strengthen own 2010-15. The 14th Finance Commission raised tax
resource generation must be accorded high priority in devolution from 32 per cent to 42 per cent of divisible
the fiscal sphere. pool for the period 2015-20. The 15th Finance
Quality of fiscal deficit Commission has recommended tax devolution of
Though Kerala’s gross fiscal deficit is not too high 41per cent for 2020-21. Population is one of the key
compared with other States in India, the quality of the criteria that have been used to determine how the funds
fiscal deficit is a matter of concern. The revenue deficit are horizontally distributed amongst States. However,
to fiscal deficit ratio was 69.26 per cent according to unlike the previous Commissions, the 15th FC has
the revised estimates of 2020-21. This indicates that a decided to use the 2011 Census as against the 1971
large portion of the fiscal deficit is channelised to fund Census that was used by the previous nine Commissions
committed revenue expenditures in the economy. The for their calculations.
 FISCAL POLICY | 313

Based on the 1971 Census, Kerala has 3.93 per cent bonds in London Stock Exchange market made it the
of country’s population. Under 2011 census, the State first State Government-run arm to raise capital through
has 2.80 per cent of India’s population. Using the latest a bond sale done outside India but denominated in
Census would penalise States such as Kerala for effective Indian rupees. KIIFB has sanctioned many hallmark
population control measures. In order, to offset the projects such as KFON, Transgrid 2.0, Coastal and Hill
concerns of States with demographic achievements, the Highways which will have significant multiplier effects
15th FC has added a new determinant, demographic on the Kerala economy.
performance, assigning it a weight of 12.5 per cent. While Policies for Overcoming Fiscal Constraints and
calculating demographic performance, the formula Generating Growth
takes the inverse of the fertility rate and multiplies this Strengthening the essence of fiscal federalism
with the 1971 population thereby favouring the States 1. In accordance with the true spirit of constitutional
with large population. Tax effort is introduced for the fiscal federalism, the share of the States in the
first time. Though it is a commendable variable, Kerala Central divisible pool may be increased from 42 to
has no advantage as many of our sectors are in informal 50 per cent.
sector. 2. Democratisation of the GST Council by giving
Income distance has been computed by taking the States more voting powers in decision making and
distance of each State from the State having highest removing the effective veto enjoyed by the Centre in
per capita GSDP. In this case, Goa has the highest the GST Council.
per capita GSDP followed by Sikkim. Since they are 3. Union Finance Commission may estimate the actual
small and outlier States, the State with the third highest loss incurred by the State due to the implementation
per capita GSDP, Haryana, has been taken as the of GST and recommend appropriate compensation.
benchmark to avoid distortions. Such distance has been 4. The criteria for horizontal devolution of taxes should
scaled by the population (Census 2011) of each State treat population as a scientific indicator taking into
and then the share of each State has been computed. account the demographic variations within each
However, scaling by the Census 2011 population leads State.
to considerable erosion of the due share in the divisible 5. The practice of shifting the financial burden of CSS
pool. to the States should be stopped.
The pattern of devolution of taxes shows 6. Local governments should be given freedom to fix
centralisation of fiscal powers in the hands of Union priority in spending the devolved funds. The funds
Government and rejecting fiscal autonomy and may be used for improving the delivery of public
independence of States guaranteed by the constitution. services, infrastructure development, plans for local-
KIIFB Model for Social and Infrastructure level development, and strengthening administrative
Development machinery.
The Kerala Infrastructure Investment Finance Board 7. Deficit targets and borrowing limit should be based
(KIIFB) is a statutory body constituted under the on past trends and assessing the growth in fiscal
Kerala Infrastructure Investment Fund Act, 1999. In requirement of the State.
the new scenario wherein fiscal powers of the States have 8. Adequate freedom should be given to State
been severely curtailed with the FRBM Act, KIIFB is a Government to mobilise funds including borrowing
financial innovation to raise funds for the need of State. from outside the budget for development purposes
Comprehensive modification of the Act and Scheme while ensuring legislative accountability for the
has been made through an amendment Ordinance in same.
August 2016. Revenue maximisation
KIIFB has been restructured to act as the key Special 1. To finance meaningful programmes which
Purpose Vehicle (SPV) for mobilising and channeling contribute to capital formation in the State, the
funds to various infrastructure projects. With new Government should free up resources through a
strategy and structure, KIIFB aims to dynamically combination of cut in expenditure and expanding
mobilise funds for infrastructure development of the revenue base.
Kerala. KIIFB draws on some major sources of 2. Reduction in tax evasion through a broad base,
Government revenue such as Motor Vehicle Tax low rates, limited exemptions, easy compliance and
(MVT) and Petroleum Cess. The issuance of masala effective use of big data and technology.
314 | KERALA DEVELOPMENT REPORT 2021

3. Tapping of hitherto unexplored tax sources namely 2. Promote climate resilient infrastructure which can
urban immovable property tax, entertainment tax sustain critical economic activities to withstand the
and taxes and duties on electricity. It is necessary to adverse effects of extreme weather events such as
create a database for new tax and non-tax sources cyclones, floods, landslides amongst others.
with good revenue potential so that they can be 3. Fiscal incentives to improve the ease of doing
adequately tapped. business.
4. Strengthen own tax revenue mobilisation in Kerala 4. Public Private Partnership model to be adopted in
by improving the growth of major own tax revenue large scale infrastructure projects, where appropriate.
sources. For instance, e-stamping facility followed 5. State Export Policy to be formulated with specific
in many States such as Tamil Nadu and Karnataka emphasis on improving the export infrastructure and
can be introduced to prevent malpractices in land diversification of goods and services. Sectors such as
registrations. agriculture, food processing, and pharmaceuticals
5. Considering that revenue from the sale of State may be accorded priority status.
lotteries constitute a significant portion of Kerala’s 6. Tap the large market for arts and sports in Kerala.
own non-tax revenue, enhancing the revenue from Incentivise organisation of mega sporting events and
lottery may be explored. cultural events which would lead to generation of
6. Review, streamline and digitise the current tax economic activity and tourist inflow which in turn
administration with the goal of increasing efficiency, will generate tax and non-tax revenues for the State.
simplifying compliance and creating predictability Way Forward
and consistency in tax regime. Kerala’s efforts at improving its finances through the
7. Revitalisation of PSUs would add substantial non- fiscal consolidation path has been jolted by a series of
tax revenue in the form of dividends and profits. policy setbacks beyond the control of State Government
such as demonetisation, non-revenue neutral rate
Expenditure rationalisation
apportionment and implementation problems in GST.
1. Efforts should be made to increase the share of
Besides, the Ockhi cyclone and the consecutive floods
capital expenditure within the budgetary allocations
experienced in 2018 and 2019 not only devastated
including in the social sector.
the revenue potential but inflicted heavy expenditure
2. Within capital expenditure, focus must be on projects
burden on State exchequer. The Covid-19 crisis
where social benefits exceed their economic costs. A
aggravated the resource constraints of the State. The
well-defined scientific formula by accommodating
State has to incur huge expenditure to deal with the
the net present values of the cash flows must be
crisis and provide support to the people affected by the
devised for capital expenditure projects.
pandemic.
3. Timely and periodic monitoring of social welfare
The relaxation in borrowing limits by increasing net
programmes by employing modern technology
borrowing limit for State Governments has offered a
equivalent to the system of Public Financial
much-needed breathing space for extra-mobilisation of
Management System implemented by the Union
funds for the State. However, the conditions attached
Government.
by Centre for availing the extra borrowings have
Generating economic growth invited criticism from States for violating the spirit of
1. Identify core sectors of growth potential in Kerala cooperative federalism. Cooperative federalism would
economy such as tourism, food processing, IT, be meaningful only when adequate fiscal support is
pharmaceuticals, and research and development. forthcoming in times of distress.
Create micro-level regional supply and value chains Despite facing fiscal constraints, the State
to generate multiplier effects and employment Government made every effort to stimulate development
opportunities. and address the needs of the people.
 Chapter 22
Some Major Integrated Programmes
The LIFE Mission these schemes were merged with LIFE.
The LIFE Mission is one of the components of the Under Phase I, 54,115 unfinished houses were
“Nava Kerala Mission,” the Government of Kerala’s identified, of which 52,620 houses were completed by
flagship programme introduced in 2016 to build a new February 2021. Under Phase II (that of providing houses
Kerala. The LIFE (Livelihood, Inclusion, and Financial to houseless persons with land), 1,72,362 beneficiaries
Empowerment) Mission aims to provide secure housing were identified and of this 1,02,485 beneficiaries were
and livelihoods by constructing houses for homeless found eligible. Of these, houses for 87,630 beneficiaries
and landless people in the State. have been completed. The remaining construction work
LIFE is a time-bound programme (2016-2021). is under progress. Phase III of the Mission emphasises
It seeks to address the housing issue and to improve building apartment housing complexes for beneficiaries
the quality of life of people in the State. In addition who are both landless and homeless. In the category of
to housing, LIFE Mission also aims at financial landless homeless beneficiaries, 1,35,769 were identified
empowerment and the provision of livelihood by the Mission. Of them, 3547 beneficiaries have been
opportunities to the beneficiaries. The Mission seeks to provided housing facility as on February 17, 2021. The
do so by not only providing homes and allied facilities progress of work of the second and third phases of the
such as anganawadis, palliative care facilities, old age Mission was affected by the Covid-19 pandemic.
care, and health care but also by raising the standard As a pilot project, Bhavanam Foundation constructed
of living through skill-building, job-based training, a housing complex at Adimali gram panchayat in
employment, and livelihood interventions. Idukki District. This complex was taken up by the
The scheme provides financial assistance of Rs 4 LIFE Mission at a cost of Rs 24.82 crore. It is a seven-
lakh per beneficiary for the construction of a house. storey building and has 217 independent apartments,
This financial assistance is made up of contributions of which 163 are already occupied. Each apartment is
from the State Plan and the local government Plan. of 460 square feet and has common facilities such as
lift, washing area, compost plant, health sub-centre,
The Mission is being implemented in three phases.
Kudumbasree counselling centre, youth club, gender
1. In the first phase, the Mission addressed the issue of
club, and crèche. The beneficiaries will be provided
incomplete houses, whose construction was started
with various livelihood training programmes.
under various housing schemes after 2000 but were
Under the Care Home project, the Cooperative
not completed.
Department has taken the initiative to construct another
2. The second phase of the Mission provided financial
14 apartment complexes across the State. Moreover, the
assistance for constructing houses for people who
LIFE Mission has identified another 56 locations in the
had land but no houses.
State for construction of apartment complexes.
3. The third phase of the Mission provides houses for
The total number of houses completed under LIFE
persons who owned neither a house nor land.
Mission up to February 17, 2021 is given in Table 22.1
Estimation of Beneficiaries and expenditure details are given in Table 22.2.
In 2017, LIFE Mission conducted a survey with the Through the LIFE Mission, the Government sought
support of Kudumbasree to identify the number of to provide decent housing facilities to all houseless
persons to be covered. The total homeless households people in the State. Even though many housing schemes
in the State are 5.12 lakh, which includes 1.84 lakh have been implemented in the past, they have not
having their own land and 3.28 lakh having no land. comprehensively addressed the needs of the houseless
Progress of Mission as has been done by LIFE Mission. By adopting a
Between 2016 and 2021 (up to February 17, 2021) convergence approach, and by completing incomplete
2,52,025 houses were completed under different houses sanctioned in the past, LIFE Mission has made
schemes included in the LIFE Mission. In the first considerable progress in providing housing to the
two years, that is, between 2016-17 and 2017-18, the people in the State and in improving the quality of life
housing schemes of Departments such as Scheduled of people in the State.
Caste, Scheduled Tribe, and Fisheries were implemented Subhiksha Keralam
by the respective Departments. From 2018-19 onwards, In the early stages of the pandemic, when food supplies
316 | KERALA DEVELOPMENT REPORT 2021

Table 22.1 Houses completed under LIFE Mission, 2016-17 to 2020-2021 in numbers
District Phase Phase 2 Phase PMAY PMAY SC ST Fisheries Total
1 3 (U) (R) Dept. Dept. Dept.
Thiruvananthapuram 6,049 14,044 119 10,148 3,010 3,075 2 1,455 37,902
Kollam 3,617 7,893 222 5,130 1,410 1,629 3 770 20,674
Pathanamthitta 1,176 1,877 158 1,260 744 863 544 10 6,632
Alappuzha 2,728 8,927 74 3,864 737 793 10 548 17,681
Kottayam 1,102 4,075 270 1,862 604 1,047 13 78 9,051
Idukki 3,129 9,407 795 1,690 761 1,227 114 15 17,138
Ernakulam 1,059 5,393 173 8,190 781 947 9 314 16,866
Thrissur 2,997 4,778 452 6,386 1,557 1,824 22 117 18,133
Palakkad 7,604 11,613 338 5,062 1,953 2,263 115 13 28,961
Malappuram 2,727 5,856 341 8,129 2,401 2,553 29 481 22,517
Kozhikode 6,477 4,707 172 4,824 1,128 1,293 12 311 18,924
Wayanad 8,440 3,443 154 2,362 924 1,073 918 - 17,314
Kannur 2,644 2,344 154 3,988 694 777 279 197 11,077
Kasaragod 2,871 3,273 125 1,585 573 623 25 80 9,155
Total 52,620 87,630 3,547 64,480 17,277 19,987 2,095 4,389 2,52,025
Note: Data as on February 17, 2021
Source: LIFE Mission
Table 22.2 Expenditure under LIFE Mission, 2016 to 2020-21 in Rs crore
Phase Source of fund Amount
First Phase State share 105.00
LSGI share/Department 577.12
Total 682.12
Second Phase HUDCO Loan 1,651.10
LSGI share 1,439.47
State share 761.20
Total 3,851.77
HUDCO Share 248.90
Individual State share 30.80
Third Phase LSGI share 254.03
Towers State Share 49.96
Total 583.69
Grand Total 5,117.58
Note: Data as on February 17, 2021
Source: LIFE Mission.

to the State were affected, the State Government youth and repatriates to agriculture, strengthening the
began the Subhiksha Keralam programme focusing animal resources and fisheries sectors, and promoting
on increasing food production by enhancing the area organic farming for safe to eat food. Fallow land
under cultivation and introducing new innovative cultivation, homestead cultivation, crop improvement
technologies. The broad objectives of the programme are activities for the existing cultivation, improved market
to attain self-reliance in food production, enhancing the facilities, interventions in post-harvest management
incomes of farmers, employment generation, attracting and long term interventions are among the activities
 INTEGRATED PROGRAMMES | 317

included under Subhiksha Keralam. Food crops such as conventional approaches that need to be adopted for
paddy, banana, vegetables, tubers, pulses, and millets are improved water management practices in the region.
the crops targeted under the programme. Food security Hierarchical classification of water systems
through increased production of milk, egg, broiler 1. Primary system comprising of the lower reaches of
chicken, buffalo, pig, goat, and fish are also envisaged. five rivers flowing to Kuttanad.
Departments of Agriculture Development and Farmers 2. Secondary system with heavily entangled system
Welfare, Local Self Government, Animal Husbandry, of larger canals in the region.
Co-operation, and Irrigation and Kerala Agricultural 3. Tertiary system with small and very small canals
University are the departments and agencies involved immediately adjacent to padasekharams.
in the programme.
Technique of compartmentalisation
The programmes in animal resources sector
By implementing compartmentalisation (dividing larger
include livelihood support packages and projects such
areas into smaller ones), the surface area vulnerable to
as Govardhini, the rural backyard goat development
flooding gets reduced, and it helps in reducing the
scheme under National Livestock Mission, commercial
flood damages.
goat raising, goat satellite units, and fattening male
calves. The induction of milch animals and heifers, Concept of “Room for River”
fodder cultivation, milk incentive, subsidised cattle 1. Room for Vembanad and Room for Pamba.
feed bags, cattle shed construction/renovation, farm 2. Allow maximum space for the natural flow of water
mechanisation, insurance, and revolving fund are the so that higher water-levels could be effectively
programmes under dairy development. managed while flooding.
Fish farms in paduthakulams, public water bodies, 3. Preserving the existing surface area of Vembanad
one-paddy-one-fish project in Kuttanad and kole lands, lake, the shrinkage of the lake being a reason for
and biofloc fish farming are activities undertaken for the acuteness of Kuttanad floods.
increased fish production in the State under Subhiksha Provision of free flow of water by unblocking the
Keralam. In 2020-21, 2,041 biofloc units, 4259 water ways
paduthakulam units, 274 cage farming units, and 1. Construction of strong outer bunds to
13,671 ha coverage under one-paddy-one-fish was padasekharams.
achieved. 2. Declogging/desilting drainage channels/canals.
Under the Subhiksha Keralam project, fallow land 3. Scientific construction of bridges and approach
cultivation of paddy, vegetables, fruits, tubers, pulses roads.
and millets has been completed in 19,711.89 ha and Improving the efficiency of Thottappally spillway
rain shelters have been established in a total area by
of 1,19,752 sq m. Integrated farming systems were 1. Widening the leading channel.
established in 14,000 units and employment provided 2. Preventing the formation of sand bar near sea
for 3684 non-resident Keralites and 7658 youth. that obstructs the flow of flood water through the
A Special Package for Post Flood Kuttanad sea mouth.
A package for the comprehensive development of
Completion of AC canal
Kuttanad region (Kuttanad Package II) was announced
1. Phase 2 ( Onnamkara to Nedumudy)
by the Chief Minister of Kerala on September 17,
2. Phase 3 ( Nedumudy to Pallathuruthy)
2020. The package consists of various measures to be
implemented through inter-departmental coordination. Major Recommendations
The package is to be implemented through State Plan, Sector: Industry.
including the Rebuild Kerala Initiative, and Kerala 1. Establish an Integrated Rice Park in Alappuzha.
Infrastructure Investment Fund Board. A holistic Sector: Power.
approach for the development of the Kuttanad regions 1. KSEB Sub station in Kuttanad.
was particularly necessary after the floods of 2018 and Sector: Drinking water.
2019. The report prepared by State Planning Board has 1. Enhance the capacity of Neerattupuram Water
covered various development issues concerned with the Treatment Plant to meet the needs of Kuttanad.
well-being and livelihood of the people of Kuttanad. Sector: Sanitation.
Water management of Kuttanad region is a core area 1. Establishment of Septage Treatment Plant (STP) for
of concern. The report focuses on innovative as well as improving sanitation in the region.
318 | KERALA DEVELOPMENT REPORT 2021

2. Expansion of CANALPY project to clean and the leading channel (Veeyapuram to Thottappally).
reclaim the canals with suitable technological and 4. Completion of ( Phase 2 and 3) of AC canal to its
social interventions. original width of 40 m.
Sector: Tourism. 5. Under the concept of “Room for Pamba” – construct
1. Scaling up the activities of Responsible Tourism three flood regulators at Kutiyathode, Cheruthana
Mission with special focus on scientific waste and Kunnumma.
management. 6. Cleaning the water ways of Kuttanad (700 km).
2. Preservation of Pathiramanal Islands to protect and Kasaragod Development Package
promote the natural habitat. The projects mentioned in the Kasaragod Development
Sector: Fisheries. Package began in 2013-14. An amount of Rs 623.63
1. Adoption of Integrated Farming – integration of crore was allocated in the State Budget for the
fisheries with agriculture/animal husbandry. implementation of Kasaragod Development Package
2. Setting up seed production centre and hatchery unit. up to 2020-21.
3. Provide credit facilities to women SHGs to improve The major projects undertaken in the agriculture
the livelihood of fisher folk. and allied sectors concern irrigation and water
Sector: Animal husbandry. conservation. The total value of the projects for the
1. Establishment of Duck Production and Research sector is Rs 71.58 crore. In the education sector,
Centre by Kerala Veterinary and Animal Sciences infrastructure development in schools and colleges was
University. given prime importance, with sectoral allocation of Rs
2. Construction of elevated cattle sheds to combat 47.90 crore. In the health sector, projects such as the
flood damages. construction of the Kasaragod Medical College and
Sector: Agriculture. related infrastructure development, and the upgradation
1. Kuttanad to be declared as a Special Agricultural of Primary Health Centres (PHC) and Community
Zone thereby converging the services on agriculture, Health Centres (CHC) to Aardram standards are being
soil and plant health, pricing, market linkages, implemented. The total outlay is Rs 99.44.crore.
storage, and value addition.
Wayanad Package
2. Reformation of Registered Seed Growers Programme
The comprehensive development programme for
by ensuring production and timely supply of quality
Wayanad District envisaged to span 5 years focuses
seeds.
on crop development, tourism, poverty alleviation,
3. Setting up a seed testing laboratory to monitor seed
the development of infrastructure and road networks,
quality.
health facilities, and the “carbon-neutral” Wayanad
4. Soil Health Management – Creation of a data bank
project. The major thrust areas in agriculture are: the
on soil analysis and application of nutrients based
rejuvenation and development of pepper, tea, and
on soil test.
coffee cultivation, branding Wayanad coffee, online
5. Adoption of Integrated Farming System approach
marketing of agricultural products under a Wayanad
for Sugarcane cultivation in Upper Kuttanad.
organics brand, developing value-addition in jackfruit,
6. Sustain and strengthen the Pokkali rice cultivation
and establishing a floriculture zone in the district.
and Koottumundakan system to conserve the
Strengthening of animal husbandry activities and
ecological balance.
expansion of Pookode Veterinary University are the
7. Dewatering in padasekharams require the
major programmes in animal husbandry sector.
replacement of petty and para systems and old motor
The other developmental activities covered by the
pumps with low head, high discharge vertical axial
package include upgrading the Mananthavadi district
flow propeller pump sets run by electric motors.
hospital to a Medical College, issues of human-wildlife
Sector: Water resources.
interface, completing the Karapuzha Irrigation Project,
1. “Room for River” in Kuttanad (Phase I) to ensure
watershed-based development activity, and soil and
the natural flow of water.
water conservation.
2. Adopting the technique of “Compartmentalisation”
in the outer bund construction of padasekharams in Idukki Package
Kuttanad area. Over the last two decades, the agrarian crisis, lack of
3. Improving the efficiency of Thottappally spillway alternative employment, and environmental issues have
to its designed capacity by deepening and widening constrained the development of Idukki District. The
 INTEGRATED PROGRAMMES | 319

Table 22.3 Financial progress of Kasaragod Development Package as on September 30, 2020 in Rs lakh
Financial Year Budgeted Outlay Administrative sanction Expenditure
amount
2013-14 2,500.00 2,790.67 2,309.55
2014-15 7,500.00 9,332.94 5,167.40
2015-16 8,500.00 9,751.49 4,676.00
2016-17 8,798.00 14,299.84 5,123.96
2017-18 9,000.00 7,629.72 2,053.07
2018-19 9,500.00 7,882.00 275.27
2019-20 9,065.00 8,958.70 2,102.91
2020-21 7,500.00 2,005.58 3,373.95
Total 62,363.00 62,650.94 25,082.11
Table 22.4 Physical progress of Kasaragod Development Package as on September 30, 2020 in number
Financial Year Project Sanctioned Project Completed Ongoing Projects
2013-14 28 28 0
2014-15 25 20 5
2015-16 80 70 10
2016-17 81 65 16
2017-18 64 40 24
2018-19 82 12 70
2019-20 50 1 49
2020-21 36 1 35
Total 446 238 208
Idukki development package envisages development of a pesticide residue analysis lab and bio-input analysis
programmes worth Rs 12,000 crore over next five lab for quality control of spices and bio-inputs.
years in the district. The main areas covered by the Welfare schemes for plantation workers of the district
package are agriculture, animal husbandry, value-added include housing and drinking water project. The package
processing industries, tourism, infrastructural facilities, includes cattle farming and dairy projects. Programmes
poverty alleviation, and environmental protection. for the development of fisheries sector in the district
Programmes in agriculture sector include fruit include homestead fish farming, biofloc fish farming,
development, permanent storage facilities for cool farming in natural ponds, and reservoir fish farming.
season vegetables in Vattavada, Kanthalloor, and In the tourism sector, the resumption of the heritage
Marayoor, the establishment of mobile agro-clinics train service, promotion of farm tourism, ayurveda
and pesticide residue testing labs and organic manure tourism, hydel tourism, responsible tourism, and the
production units. The package will also support the development of tourism clusters and circuits with the
establishment of farmer-producer companies for objective of enhancing the revenue potential are the
production, processing, branding, and marketing major thrust areas.
coffee and cocoa. It will support agri-based start-ups Other highlights of the package include the re-
and small scale enterprises, the establishment of a mega construction of the Pattiserry dam, the enhancement
food park, and cold storage facilities. of basic infrastructure facilities in Government
In Idukki, spice development programmes have been colleges, and the completion of the Idukki Medical
planned with particular emphasis on the rejuvenation and College. The power generation system in the district
expansion of pepper gardens, promotion of spices such will be strengthened through the establishment of
as nutmeg, ginger, turmeric, clove, and cinnamon, the new substations at Murukkasserri, Kumaly, Munnar,
construction of a Spices Park in Muttam, branding Idukki Marayoor, and through wind and solar energy sources.
spices, and establishing supply chains to reach national and Programmes to alleviate human-animal conflict and
international market. Also planned are the establishment tribal development programmes are also envisaged.
320 | KERALA DEVELOPMENT REPORT 2021

Acknowledgement
Members of the Kerala State Planning Board commissioned background papers in certain select areas for
the Kerala Development Report. Members also received inputs and assistance from different persons and
sources. They are as follows.

Mr Basit Abdullah
Dr Vinoj Abraham
Dr Jiju P Alex
Dr P Sudheer Babu
Dr Srikumar Chattopadhyay
Mr Sunil Devassy
Ms Gita Gopal (assisted by Ms Shaki K T)
Dr M P Jayesh
Dr K Riji John
Mr Pramod G Krishnan
Mr Ajit Mathai
Dr Samson Mathew
Dr M P Sukumaran Nair
Dr. Achuthsankar S Nair
Mr Sasidharan Nair N
Dr V Ramankutty
Ms Shifa Sadiqe
Dr Archana Sathyan
Dr Divya Senan
Dr B G Sreedevi
Dr P R Sudhakaran
Dr Satish Kumar, Dr Suja Kunnath, and Dr Vinitha Mary George (assisted by Ms Anitha Babu)

The Vice Chairperson of the State Planning Board also expresses his gratitude to S R Sanal Kumar, P M
Manoj, Parvathi Menon, R Mohan, and Madhura Swaminathan for different contributions to the Report.

Inputs were received from organisations such as Public Sector Restructuring and Internal Audit Board
(RIAB) and Centre for Management Development (CMD), Thiruvananthapuram.

The writers mentioned here are not responsible for the views expressed in or for the content of the Report.
Designing & Printing : St. Joseph’s Press, Thiruvananthapuram